


LB 2826 


.5 


.N5 fl6 


1920 


Copy 1 






BOARD OF EDUCATION 
THE CITY OF NEW YORK 

Report Submitted by the Super- 
intendent of Schools 

WILLIAM L. ETTINGER 



IN SUPPORT OF 

THE MAJOR ITEMS OF THE BUDGET ESTIMATE 

FOR THE YEAR 1921 






\MoO 



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/ 

BOARD OF EDUCATION 

THE CITY OF NEW YORK 



REPORT 



OF THE 



Superintendent of Schools 



ON THE 



BUDGET ESTIMATE 
FOR 1921 



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BOARD OF EDUCATION 

ANNING S. PRALL, President 
GEORGE J. RYAN, Vice-President 
J(JHN A. FERGUSON Mrs. EMMA L. MURRAY 

ARTHUR S. SOMERS M. SAMUEL STERN 

FRANK D. Wn.SEY 



SUPERINTENDENT OF SCHOOLS, WILLIAM L. ETTINGER 



September, 1920 



^7 af 

OCT 20 



W2Q 






FOREWORD 

' The Budget of the Department of Education comprises the largest item 
in the total budget for which The City of New York must make financial 
provision. It frequently happens that when the Educational Budget is 
under consideration by the financial authorities there is a great deal of 
uninformed criticism of educational expenditures. As the general public 
has no detailed knowledge of the costs of education, the opinion frequently 
prevails that many requests of the Board of Education are exorbitant or 
unwarranted. Such public opinion is due in large measure to the fact that 
our school system is so vast and its activities so varied that very few are at 
all cognizant of what our schools are doing or trying to do. This attitude 
is also due in part to the fact that in the past the public has not been suffi- 
ciently informed as to the problems, the accomplishments, and the needs of 
the school system. 

This report has been prepared in order to throw the light of publicity 
upon our Budget Estimate for 1921, which necessarily is an intricate finan- 
cial statement, more or less bewildering in its formidable array of figures. 
This summary cannot, because of space limitations, discuss or explain all 
of the multitudinous items that go to make up the total budget estimate. 
The report deals only with the major items. It is hoped, however, that the 
facts herein contained will serve as a sufficient background for the financial 
requests contained in the budget. Financial ability approximating the 
amount requested is absolutely necessary if progressive educational policies 
are to be carried out, for it should be borne in mind that in the final analysis 
all our financial problems viewed in proper perspective are biit the reflection 
of educational and physical problems. Figuratively speaking, the substance 
of every educational and physical problem casts an inseparable financial 
shadow. 

The preparation of the departmental budget is a huge task that has 
engaged the attention of the Board of Education and many of its staff for 
many weeks. The present Board of Education has regarded the preparation 
of the budget as a function in which the public must be interested. There- 
fore, both this year and last the Board of Education has held a series of 
conferences open to the public and the press, at which were discussed and 
considered the requests of the heads of the various activities. At 'these 
hearings, which were held daily, representatives of the city financial authori- 
ties were present and all organizations and individuals interested in the 
several activities were allowed to participate. The chief desire of the Com- 
mittee in conducting the public hearings and of the Superintendent of 
Schools in issuing this report is to place within the reach of all concerned 
with the welfare of our schools the salient facts and basic policies on which 
the Budget Estimate is predicated. A fully informed public may always be 
trusted to give generous support to a progressive educational program. 

Respectfully submitted, 

William L. Ettinger, y 

Superintendent of Schools. 
September 10, 1920. 



I— EDUCATIONAL BUDGET BASED ON EDUCATIONAL 

PROGRAM 

Underlying our budget estimate is the educational program of our sys- 
tem. Any consideration of the educational budget must mean a considera- 
tion of our educational policies and our educational problems. In the last 
analysis every educational problem is a financial problem and every financial 
question ultimately resolves itself into a question of educational policies and 
aims. 

What Are the General Aims of Our School System? 

1. The primary aim of our school system is, briefly speaking, 

(a) to provide adequate and appropriate educational opportuni- 
ties for every child in our city of compulsory school age (from 7 to 
16 years) ; 

(b) to provide similar opportunities for every child of preschool 
age (from 5 to 7 years) and also for our youth from 16 to 18 or 21 
years who may desire to avail themselves of further educational 
advantages. 

2. A secondary aim of our educational system is that involved in our 
extension activities. Such activities seek 

(a) to provide appropriate facilities for education to those, 
either youth or adult, who were unable to avail themselves of the edu- 
cational opportunities ofiFered during their childhood ; 

(b) to aid in the assimilation into our social and political organi- 
zation of those newcomers into our midst who have come from 
foreign lands ; 

(c) to provide proper facilities for recreation, social develop- 
ment and cultural impj-ovement to those in our community who may 
desire to profit thereby. 

To realize each of the above general aims, definite, specific educational 
policies have been formulated in detail by the Board of Superintendents and 
adopted by the Board of Education. Such educational policies represent not 
so much the personal belief s of the superintendents but rather their interpre- 
tation of the educational ideals and demands of the community. That such 
ideals and demands coincide with the ideals and demands of progressive 
cities throughout the country indicates that they are in consonance with the 
progressive educational thought and practice of the present. 

To make possible the realization of our aims funds are required to furnish 
not only grounds, buildings and equipment, but also to provide teachers, 
supplies, fuel and other items needed in the conduct of our schools. In the 
use of our funds and in the request for further financial support neither 
extravagance nor parsimony but economy and efficiency should control. 
Our problem is not to find out how cheaply the schools may be operated but 
how wisely our funds are expended. Our public schools are the peoples. 



What they are today is what the pubhc has required. What they are to be 
in the future is also dependent upon what the pubhc may demand. There 
is no doubt that pubhc opinion in the hght of full information will most 
readily approve of proper financial support for our schools in order that the 
standards of our schools may not only be maintained at their present level, 
but also raised still higher and that our educational facilities may be still 
further developed. 



11— PROVISIONS OF THE EDUCATION LAW RELATING TO 
ANNUAL ESTIMATES OF THE BOARD OF EDUCATION 

Article 33a, Section 877, prescribes the following, relative to the annual 
estimate of the Board of Education: 

1. The Board of Education shall prepare annually an itemized 
estimate for the ensuing fiscal year and file the same on or before 
the first day of September. Such estimate shall be for the foUowmg 
purposes : 

(a) The salary of the superintendent of schools, associate, 
district or other superintendents, examiners, directors, supervisors, 
principals, teachers, lecturers, special instructors, auditors, medical 

- inspectors, nurses, attendance officers, clerks and janitors and the 
salary, fee or compensation of all other employees, apponited or 
employed by the said board of education. 

(b) The other necessary incidental and contingent expenses 
including ordinary repairs to buildings and the purchase of fuel 
and light, supplies, textbooks, school apparatus, books, furniture 
and fixtures and other articles and service necessary for the proper 
maintenance, operation and support of the schools, libraries and 
other educational, social or recreational affairs and interests under 
its management and direction. The provisions of this section in 
regard to the purchase of light shall not apply to a city having a 
population of a million or more. 

(c) The remodelling or enlarging of buildings under its con- 
trol and management, the construction of new buildings for uses 
authorized by this chapter and the furnishing and equipment there- 
of, the purchase of real property for new sites, additions to present 
sites, playgrounds or recreation centers, and other educational or 
social purposes, and to meet any other indebtedness or liability 
incurred under the provisions of this chapter or other statutes, or 
any other expenses which the board of education is authorized to 
incur. 

7. In a city which had, according to the federal census of nine- 
teen hundred and ten, a population of one million or more such esti- 
mate shall be filed with the board of estimate and apportionment. 

(a) If the total amount requested in such estimate shall be 
equivalent to or less than four and nine-tenths mills on every dollar 
of assessed valuation of the real and personal property in such 
city liable to taxation, the board of estimate and apportionment 
shall appropriate such amount. 

(b) If the total amount contained in such estimate shall ex- 
ceed the said sum of four and nine-tenths mills on every dollar of 
assessed valuation of the real and personal property in such city 
liable to taxation, such estimate shall, as to such excess, be subject 
to such consideration and such action by the board of estimate and 
apportionment, the board of aldermen, and the mayor as that taken 
upon departmental estimates submitted to the board of estimate and 
apportionment. 



(c) The board of estimate and apportionment is authorized to 
make additional appropriations for educational purposes authorized 
by this chapter. The general school fund shall consist of all 
moneys raised for the payment of the salaries of all persons em- 
ployed in the supervising and teaching staff, including the super- 
intendent of schools and all associate, district and other superin- 
tendents, members of the board of examiners, attendance officers, 
supervisor of lectures, lecturers and director and assistant director 
of the division of reference and research. The special school fund 
shall contain and embrace all moneys raised for educational pur- 
poses not comprised in the general school fund. The general 
school fund shall be raised in bulk and for the city at large. The 
board of education shall administer all moneys appropriated or 
available for educational purposes in the city, subject to the provi- 
sions of law relating to the audit and payment of salaries and 
other claims by the department of finance. 

8. A board of education may, to meet emergencies which may 
arise, submit a special estimate in which items for extraordinary ex- 
penses may be submitted to meet such emergencies. Such estimate 
shall contain a complete statement of the purposes for which the items 
are requested and the necessity therefor. The same method of pro- 
cedure shall be followed in submitting such estimate and such esti- 
mate shall be subject to the same consideration and action as is re- 
quired in the submission, consideration and action upon the regular 
annual estimate submitted by a board of education. The common 
council in such a city shall have power to make the appropriations 
requested by a board of education in such special estimate. 

879; — 4. Bond Issue — In a city having a population of one mil- 
lion or more, the board of estimate and apportionment may in its 
discretion annually cause to be raised such sums of money as may 
be required for the purposes enumerated in subdivision c of section 
eight hundred and seventy-seven of this act, in the manner provided 
by law for the raising of money for such purposes. 



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10 
III— BUDGET ESTIMATE FOR 1921 

The annual estimate of the Board of Education is prepared in accord- 
cince with the foregoing requirements. 

The budget estimate proper (see page 1 of Budget Estimate 1921) is 
arranged according to three classes of purposes enumerated in the law, 
Section 877-1 and also according to the two funds prescribed by Section 
877-7, General School Fund and Special School Fund. 

(a) For salaries. 

(b) For expenses for maintenance and operation (other than 
salaries). 

(c) For purchase of sites, etc., and construction of buildings, 
etc. (For meeting any other indebtedness or liability.) 

The total requirements for the school system for 1921 as formulated 
in the budget estimate amounts to $146,322,050.11. Of this amount $9,- 
877,652.16 is estimated as the sum receivable from the State and $136,444,- 
397.95 is the sum requested from the city. 

This total amount is divided among the following main items : 



Purpose. 


Amount. 


Per Cent, 
of Total. 


1. For Current Maintenance and Operation — 

(a) Salaries of all persons employed.. . . 

(b) Expenses other than salaries 


$77,911,213 27 
13,992,901 66 


53.25 
9.56 


' Total 


$91,904,114 93 

46,920,327 95 

7,497,607 38 


62.81 


2. For Capital Outlay — 

New Sites and Buildings 


32.06 


3. For Redemption of Special Revenue Bonds 
and Tax Notes (authorized or requested 
for 1920) 


5.12 






Grand Total ... 


$146,322,050 11 


99.99 







Budget Estimate For Current Operation and Maintenance 



Limiting our attention to the estimate of requirements for operation 
and maintenance it is seen that the total required is $91,904,114.93, of 
which $9,877,652.16 is estimated as„the amount receivable from the State, 
leaving $82,026,462.77 as the net amount requested from the City for this 
purpose. 

The budget estimate of the Board of Education for current operation 
and maintenance is arranged under the two funds. General School Fund 



0.6% T 

».e% . 

GENEEAL CONTROL 3.6% 




C05TO^ INSTauCTION 8I.O % 



1931 BUDGET t5TI/v\ATE EOB. CURQ.E/ST OPEQATIO/S 

ACCOBDI^Q TO MAIN ITE:M5 Or EXPE:AID\TUD-E: 



12 



and Special School Fund, according to a 
classifications, as follows : 



number of main headings, or 



Item. 


Amount. 


Per Cent, 
of Total. 


General Control and Administration 

Cost of Instruction 


$3,261,739 86 

74,519,827 22 

1,439,474 12 

5,279,038 58 

6,828,977 77 

575,057 38 


3.55 
81.08 


Auxiliary Agencies 


1 57 


Operation of School Plant 


5 74 


Maintenance of School Plant 


7 43 


Miscellaneous 


62 






Total , 


$91,904,114 93 


99.99 



Eighty-one per cent, of the gross total requested for current operation 
and maintenance goes to instruction with 1.6 per cent, for agencies and 
activities of an auxiliary character. The next largest item is that for main- 
tenance of school plant, which includes repairs to buildings and replace- 
ments and calls for 7.4 per cent, of the total. For operation of school plant 
the amount is 5.7 per cent, of the total. The items for general control 
which comprises educational administration, business administration and 
enforcement of the compulsory education laws make up 3.6 per cent, of the 
total. 

Detailed explanatory schedules and tables form the bulk of the printed 
estimate. Summary schedules for the General School Fund and for the 
Special School Fund are found on pages 9 to 14 inclusive of the printed 
estimate. - ■ 



13 

IV— DAY ELEMENTARY SCHOQ-LS 
Budget Items 





1921 

Estimate. 


1920 
Apportion- 
ment. 


Increase. 


Estimate 
Schedule 
Number. 


I — General School Fund — 
Salaries of Teachers, 

et'al.— 
1. Present Organiza- 
tion — 

(a) for persons per- 
manently employed 
Mar. 31, 1920.... 


$55,324,060 81 
1,074,688 90 






No. 2— p. 18 


(b) for persons to fill 
vacancies existing 
on Mar. 31 




No. 3— p. 18 








2. For Substitutes for 
absent teachers 

3. For enlargement of 
System — 

New positions and 
special items 


$56,398,749 71 
842,126 00 

1,215,062 42 






No. 6— p. 22 

No. 4— p. 19 
No. 5— p. 20 








Gross Total 


$58,455,938 13 
. . 1,970,252 58 








Less salary accruals, 
etc 


















Net Total 


$56,485,685 55 


$34,123,671 96 


$22,362,013 59 




II — Special School 
Fund — 
1. General Educational 
Supplies and Equip- 
ment 


$2,038,350 77 


*$1,686,069 85 


$352,280 92 


No. 15— p. 35 





*The item indicated above is the amount requested for 1920. Tliis amount was included in a lump 
sum request which was reduced in the final budget. 

The first concern of our school system must be to provide educational 
opportunities for every child in our city from seven to sixteen years of 
age. The compulsory education law requires the attendance of 5uch chil- 
dren and provides penalties for non-compliance with the law. The corollary 
of this is that the school system must provide for these children first and 
foremost. The elementary schools serve all the children of the city and 
for the great majority it is the only school they ever attend. In every 
sense the day elementary school is the school of the people and should be 
liberally supported. 

In our budget estimate the largest single item is invariably the request 
for funds for teachers in the day elementary schools. For 1920 the total 
budget for the Department of Education was $54,445,268.28. Of this sum 
$34,123,671.96 or 63.0 per cent, was for teachers and principals in day 
elementary schools. The total estimate for maintenance and operation for 



14 

1921 amounts to $91,904,114.93. Of this amount $56,485,685.55, or 61.5 
per cent., is for salaries of teachers and principals in elementary day schools. 
For 1921, the total of the General School Fund estimate is $72,444,886.98, 
of which $56,485,685.55, or 77.9 per cent., is for day elementary schools. 
The budget requests for 1921, formulated in July, are subdivided into 
requests for salaries for 1921 : 

I — (a) Of persons in service on March 31, 1920. 

(b) Of persons to be appointed to vacancies existing on March 31, 
1920. 

n — Of teachers to be appointed to new positions , 

(a) Between March 31 and December 31, 1920. 

(b) During the budget year 1921. 

Ill — Of substitutes for service in 1921. 

1. Teachers Permanently Employed and Vacancies Existing on March 31, 

1920 
The budget estimate for the day elementary schools, so far as it includes 
requests for funds for the salaries of persons in service on March 31, 1920, 
and for persons to be appointed to fill vacancies existing at that date, rests 
upon facts which are matters of record. In a separate pamphlet prepared 
by the Auditor of the Board, schedules are submitted in support of this 
item, showing calculations by schools on a name by name computation of 
persons permanently employed on March 31, 1920. The cost of salaries for 
such persons will amount to $55,324,060.81, or 94.64 per cent, of the gross 
amount for elementary schools (General School Fund). For vacancies, 
$1,074,688.90, or 1.83 per cent., is requested. 

2. Teachers et al. to he Appointed to New Positions 

The opening of the schools in the Fall is always accompanied by an 
influx of new pupils, and to care for this increase in register, teachers in 
addition to those in service in the preceding March and those to be appointed 
to fill vacancies existing at that time must be appointed. These new teachers, 
plus those in service on March 31st and those appointed to fill then existent 
vacancies, will constitute the payroll as of December 31, 1920, for which 
salary provision must be made in the budget for 1921. 

During 1921 also, additional teachers will be needed, as it will be 
necessary to appoint teachers to take care of the increased register in the 
Fall of 1921 over the Spring term, so that the budget estimate therefore 
includes provision also for the salaries of those teachers to be appointed 
during 1921. 

The number of teachers to be appointed between September and Decem- 
ber, 1920, prior to the budget year of 1921, depends upon the estimated 
increase in register between these months. The number of teachers to be 
appointed during the budget year 1921 also depends upon the estimated 
increase in register during 1921. Inasmuch as these items are based on 
forecasts made from two to eighteen months in advance, such estimate 
necessarily contains an element of uncertainty. 

In the past differences of opinion have arisen as to the correctness of 
these requests of the Board of Education for additional teachers. If the 
total register of the entire elementary school system remained the same 



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16 

from year to year or from month to month, or if the increase from year to 
year or from month to month were regular, it would be a simple matter to 
estimate exactly the register for which teachers must be provided. The 
total register of the elementary schools, however, is a variable quantity, 
changing from month to month throughout the school year and increasing 
by irregular amounts year over year and month over month. Accordingly, 
to estimate such a variable from two to eighteen months in advance with 
absolute exactness is not possible. 

Our estimates are most carefully made and are checked and tested 
by all available methods. The relative exactness of an estimate based upon 
the average annual increase for a series of years preceding has been 
worked out by the Statistical Division. In the budget estimate for 1920, 
submitted in September, 1919, the estimated increase in register for 
December, 1919, over December, 1918, was placed at 10,000. The actual 
increase that occurred was 10,721. 

A — Estimate of the Need of Teachers During 1921. 

It is estimated that there will be needed 298 regular teachers for the 
Fall of 1920 and 400 for 1921. This does not include principals, clerks and 
teachers of special branches. The estimate as to the need of teachers during 
1921 has been made from a study of the increase in the number of classes 
(teaching positions) and of pupils on register during the last ten years, 
special attention being given to the present trend in registration and to 
the several factors tending to increase or reduce the normal annual growth 
of the elementary schools. 

Estimated Increase in Register — The register on December 31, 1919, 
was 762,221. It is estimated that the register for December 31. 1920, will 
be 771,221, or an increase of 9,000 over the register of December 31, 1919. 
Detailed statistical data in support of these estimates are given in Document 
"A," included as an appendix in the departmental estimate. Figure 3 shows 
the increase for each year since 1910. 

The estimated increase of 9,000 is lower than the annual increase during 
seven of the last ten years. The estimated increase in register for December 
31, 1921, over December 31, 1920, is placed at 12,000. 

Estimated Increase in Classes — The estimated increase in the number 
of classes on December 31, 1920, over the number of classes on December 
31, 1919, is placed at 375, or an increase of 298 over the number of classes 
organized on March 31. 1920. This represents an increase of two per 
cent, during the calendar year of 1920, which has been exceeded in seven 
of the last ten years. As far as can be determined now, the increase in 
the teaching corps for 1921 cannot be safely estimated at less than 400. 
This represents an increase of 2.1 per cent, in the number of classes of 
December 31, 1921, over December 31, 1920. Figure 4 shows the annual 
increase in number of classes on December 31 for the years 1910 to 1921, 
inclusive. 



17 



Table I — Distribution of Classes Estimated as Necessary to be Formed by 
December 31, 1920, and December 31, 1921. 



Grade 


No. of 

Classes 

March 

31, 1920. 


No. of 

Classes 

Estimated 

Dec. 31, 

1920. 


Increase 
in Num- 
ber from 
March 31. 


Estimated 

No. of 

Classes 

Dec. 31, 

1921. 


Increase 
in Number 
of Classes 
from Dec. 

31, 1920. 


Intermediate 


144 

3,557 

13,698 

878 

9 

248 

28 

76 

124 

26 

34 


212 
3,647 

13,795 

890 

14 

266 

29 

82 

125 

26 

34 


68 
90 

97 

12 

5 

18 
1 
6 
1 


300 
3,770 

13,898 

903 

26 

275 

39 

97 

148 

29 

35 


88 


7A-8B 


123 


1A-6B — Opport., Kind. Exten- 
sion and Misc 


103 


Kindergarten 


13 


Cardiac 


12 


Ungraded 

Blind & Sight Conservation . . 

Crippled 

Anaemic 

Tuberculous 

Deaf 


9 

10 

15 

23 

3 

1 


Totals 


18,822 


19,120 


298 


19,520 


400 



The shortage of substitute teachers during the past two years and the 
failure to secure additional accommodations in the crowded sections of the 
city have prevented the formation of a sufficient number of new classes to 
meet the needs of the schools. This is evidenced by the fact that, while 
the number of classes with registers above 50 was reduced from 1,228 in 
March, 1912, to 460 in March, 1917, the number of such classes has 
increased to 534 on March 31, 1920. With an increased supply of teachers, 
which is now anticipated, and with increased accommodations, it is expected 
that the increase in number of classes will be not less than the number 
estimated. 

It will be seen that the estimated increase in classes for 1920 is at a 
higher rate, 2 per cent., than the increase in registration, 1.3 per cent. 
This is due to the fact that many of the classes formed will be with registers 
smaller than the average class size on December 31, 1919, viz. 40.9, notably 
in those above grade 6B and the special classes, such as ungraded, anaemic, 
crippled, etc., which are formed with registers much smaller than the 
average register of all classes. The formation of these higher grade and 
special classes with the formation of classes of the regular grades to reduce 
large registers necessitates an increase in the total number of classes in the. 
city at a rate somevv^hat in excess of the increase in register. 



B — Reduction of Oversized Classes. ' 

For some years earnest efforts have been made to keep the maximum 
number of pupils in a grade class down to 40. Some progress has been 
made in this direction. On- March 31, 1920, the average number of pupils 
to a class was 40. An average, however, is a mythical figure and fails to 
show the real situation. 



18 

The following table shows the organization of classes in elementary- 
schools on March 31, 1920: 

Table II — Number of Classes, Register and Average Number of Pupils 
Per Class — Elementary Schools, March 31, 1920 



Grade. 


Number of 
Classes. 


Register. 


Average 

No. of 

Pupils 

Per Class. 


Per Cent, 
of Classes 
to Total. 


Intermediate 


144 

3,557 

13,249 

348 
73 

878 

248 
28 
76 

124 
26 
34 
37 


5,011 

137,026 

553,457 

10,886 

2,811 

33,620 

4,021 

373 

1,625 

2,952 

685 

278 

988 


34.9 
38.5 
41.7 
33.3 
38.5 
38.2 
16.2 
13.3 
21.3 
23.8 
26.3 
8.2 
26.17 


0.77 


7A-8B 


18.87 


1A-6B 


70.40 


E and Opportunitv 


1.84 


Kindergarten Extension 

Kindergarten 


0.39 
4.66 


Ungraded 


1.32 


Blind and Sight Conservation. . . 
Crippled 


0.15 
0.40 


Anaemic 

Tuberculous 


0.66 
0.14 


Deaf 


0.18 


Miscellaneous 


0.21 


Total 


18,822 


753,733 


40.0 


99.99 







Table III — Number of Classes in Elementary Schools, Exclusive of Kinder- 
. gartens. With Registers Over 50 on March 2i\st 



Year. 


Number of Classes. 


Increase or Decrease 
over Preceding Year. 


1912 


1,228 
930 
714 
957 
993 
460 
464 
489 
534 




1913 

1914 


298 decrease 
216 


1915 

1916 

1917 

1918 

1919 

1920 


243 increase 

36 
533 decrease 
4 increase 

25 
45 



The request for teachers for 1921 contains provision to the extent of 
.23 positions for reducing such oversized classes. This is a very slight num- 
;ber, in view of the obvious need in this direction. The teachers and pupils 
in large sixed classes work under severe handicaps, which should be removed 
if good results are to be accomplished. Our present organization is an 



19 



economical one. Table IV shows for March 31, 1920, the number of 
classes in elementary schools (including truant) according to size. 

Table IV — Number of Classes According to Si^e as of March 31 „ 1920 







Rapid 




Per Cent. 




Classes 




Regular 


Advance 


Total. 


of Classes 


Kind. 


for De- 


Size. 


Classes. 


and 
Opportun. 




to Total. 




fectives 
&Miscel. 


Less than 10 












37 


10 and less than 15 


102 


15 and less than 20 












192 


20 and less than 25 












120 


Total less than 25 ... . 


116 


15 


131 


0.8 


43 


451 


25 and less than 30 


237 


12 


249 


1.4 


77 


83 


30 and less than 35 


1,773 


88 


1,861 


10.7 


123 


18 


35 and less than 40 


4,412 


139 


4,551 


26.2 


175 


19 


40 and less than 45 


5,689 


70 


5,759 


33.1 


305 


2 


45 and less than 50 


3,814 


19 


3,833 


22.0 


116 




50 


463 


5 


468 


2.7 


28 




51 and less than 55 


430 




430 


2.5 


5 




55 and over 


104 




104 


0.6 


6 




Total 


17,038 


348 


17,386 


100.0 


878 


573 



The table shows that 380 classes, or 2.2 per cent., have registers less 
than 30; that 6,412 classes, or 36.9 per cent., are between 30 and 40 in 
register; 9,592 classes, or 55.1 per cent., are between 40 and 50, and that 
1,002 classes, or 5.8 per cent., have 50 or more children. 

Educational practice is agreed that the optimum number of pupils to a 
class should not exceed 40. Of classes of 40 and above in size New York 
has 10,594, or 60.9 per cent, of the total number. This condition cannot 
but affect the character of the work done. It is in large part due to the 
lack of class room accommodations which has existed for a number of 
years. 

3. Classes for Defective and Physically Handicapped Children. 

Perhaps the most charactertistic advance in school administration during 
recent years has been the rejection of the assumption that all children are 
practically alike in physical and mental equipment, and also that children 
with marked physical defects of sight, hearing or limb have no place in the 
public schools. Under the older belief children of widely different abilities 
were grouped together in unit classes, with the result that physical and 
mental defectives were very frequently laggards, because of their inability 
to take advantage of the instruction offered. The child with defective 
vision, the stammerer, the cardiac and the mental defective were placed in 
severe scholastic competition with practically normal children. The net 
result of their failure was not only extreme personal discouragement and 
loss of self-esteem and self-confidence, but also considerable expense to the 



33« 



262 



220 



107 



5G 



CK 



14 



LfrS& 2S 30 

THAN TO TO 

ZS 30 35 



4.0 4-5 SO 

TO TO AND 

45 50 ovta 



PIQUI5,E: 5 

/4U/A6EB. OF CLA.55t5 ACCOJ^DI/SQ TO SIZE: 
OUT OP tVeaV lOOO B.E6ULAG CLAS>SE5 
lAI ELE-/AtA4TAaY SCHOOLS 



21 

city because of the fact that such children were repeaters in the grade and 
frequently a hindrance to the efforts of the teacher with the class. 

New York has been a pioneer in providing facilities for such children. 
Table V shows the number of such classes organized and the register during 
the years 1914-1920. 

Table V — Classes for Defective and Handicapped Children 





Blind 

St Sight 
Conser- 
vation. 


Anaemic. 


Cardiac. 


Crippled. 


Deaf. 


Tuber- 
cular. 


Ungraded- 




CI. 


Reg. 


CI. 


Reg. 


' CI. 


Reg. 


CI. 


Reg. 


CI. 


Reg. 


CI. 


Reg. 


CI. 


Reg. 


1914 

1915 

1916 


15 
16 

17 
20 
22 
24 
28 


157 
161 
158 
203 
220 
285 
373 


40 
53 
82 
90 
109 
115 
124 


947 
1,331 
1,941 
2,190 
2,634 
2,794 
2,952 


"z 

3 
9 


70 

73 

209 


39 
45 
49 

55 
63 

77 
76 


725 
817 
960 
1,062 
1,197 
1,464 
1,625 


30 
31 
31 

5i 

34 
34 


278 
290 
288 
286 
302 
292 
278 


21 
26 
25 
26 

22 
27 
26 


462 
574 
549 
572 
516 
679 
685 


182 
203 
212 
217 
233 
241 
248 


2,829 
3,417 
3,840 


1917 

1918 


3,834 
3,880 


1919 


4,129 


1920 


4,021 



We now make provision for the blind child, who formerly groped around 
his home, making no progress and developing all kinds of unfortunate 
mannerisms ; for the deaf child, who either remained at home or struggled 
ineffectively in the class room ; for the child afflicted with a cardiac lesion, 
who formerly was compelled to comply with all the exacting demands made 
with reference to dismissals, gymnastics, book work, despite his disability ; 
for the crippled, who either remained at home after infantile paralysis had 
afflicted him or who struggled manfully in a school room equipped with 
furniture which was totally unsuited to accommodate him ; for the speech 
defective, whose stuttering and stammering made him an object of pity or 
ridicule, both in his school and in his social environment ; and for the mental 
defective, whose inability to respond as a member of a normal class begot 
nagging and eventually drove the child to truancy. 

The expense attached to, the organization of special classes for these 
children is several fold. First, teachers of special ability or special training 
are required, for which higher rates of compensation are allowed. Secondly, 
the classes for such children are smaller in size than the regular classes, as 
the large size groups cannot be advantageously handled. Thirdly, in several 
types of special class, special equipment and supplies are required. Lastly, 
transportation, which must be provided for many cases, entails considerable 
expense. The following table gives the special school fund items included 
in the estimate for these classes. 

It is unnecessary to defend any provision that is made for such children. 
From the social standpoint it is highly desirable that every effort be made 
to provide for and educate such children, to attempt to make them sound 
and healthy, to rehabilitate them, so that they may become useful, self- 
supporting or partially self-supporting members of society. From the 
standpoint of the individual everything that can be done to better the lot of 
these unfortunate charges, even to make them happier, is entirely justi- 
fiable. From the school standpoint the segregation of these handicapped 
children from the regular classes is an advantage, as it permits of more 



22 



normal progress and advancement with the normal group. Backward indeed 
would be any educational program that did not include within its scope 
ample provision for these handicapped children. 

The items for teachers are included under those for the elementary 
schools. Schedule 4, General School Fund, page 19, and Schedule 5, Gen- 
eral School Fund, page 20. 

Table VI — Special School Fund Iteins for Classes for Defective and 

Handicapped Children 



Classes. 


General 
Educa- 
tional 
Supplies & 
Equipment. 


Special 
Supplies & 
Equipnent. 


Classroom 
Equipment. 


Transpor- 
tation. 


Total. 


Anaemic or Open Air . 
Blind and Sight Con- 
servation 

Cardiac 


$9,278 00 

8,845 32 
3,000 00 
3,977 50 
850 75 
1,520 00 
13,762 58 


$8,122 58 

246 46 
3,164 64 
2,199 35 
65 61 
2,107 54 
26,496 00 
6,529 35 


$20,224 50 

9,944 00 
5,850 00 
12,495 00 
545 00 
2,053 50 
5,321 25 




$37,625 08 


$5,504 33 


24,540 11 
12,014 64 


Crippled 


155,098 92 
4,910 00 


173,770 77 


Deaf 


6,371 36 




5,681 04 


Ungraded 




45,579 83 


General 




6,529 35 








Total 


$41,234 15 


$48,931 53 


$56,433 25 


$165,513 25 


$312,112 18 


See Budget Estimate 
Schedules 


No. 15,p.36 


No. 20, p.39 
No. 21,p.40 
No. 22, p.40 


No. 40, p.47 
No. 42, p.48 


No. 59, p. 53 





Anaemic or Open Air Classes 

This type of class is conducted for the anaemic, undernourished and 
physically subnormal child, for whom the first consideration should be his 
physical condition. The classroom in such classes is suitably located and 
the windows are so arranged as to permit the greatest possible influx of 
fresh air. Some of the classes hold sessions in the courtyards or on the 
roofs of school buildings. Particular attention is paid to the physical care 
of the child through inspection by doctors and nurses, school lunches, and 
rest or sleeping periods. Steamer chairs and cots with sleeping bags are 
provided. The treatment and care given in these classes makes it possible for 
the child to continue in school without loss of instruction where otherwise 
in most cases the child would be compelled to leave school. 

At present there are 124 such classes with a register of 2,952. The 
budget request calls for provision for twenty-four additional classes, one 
to be organized in the fall of 1920 and 23 during 1921. 

Classes for Tuberculous Children 

These outdoor classes are conducted in sanatoriums, hospitals, and on 
abandoned ferryboats, etc. They are intended for children who have 
tuberculosis or who have tendencies toward the disease. Sessions are held 



2Z 

outdoors. The care is similar to that in open air classes. At present there 
are 26 such classes and provision is requested to organize three additional 
classes during 1921. 

These classes have been extremely successful and have been able to 
return many children to regular classes in sound physical condition. 

Blind and Sight Conservation 

During the past school year there were conducted 28 of these classes. 
Provision is requested for 11 additional classes, one for the fall of 1920 
and ten to be organized during 1921. The classes are conducted for chil- 
dren who are totally blind and also for those whose sight is in very poor 
condition or who are suffering from some eye disease. 

Besides the academic work, instruction is given in suitable industrial 
and commercial work. The care of these children necessitates the expendi- 
ture of money for car fares for the pupils themselves and for pupil guides, 
who accompany the children to school. 

Cardiac Classes 

Classes for children suffering from cardiac diseases have been conducted 
for four years. It is planned to increase the number now from 9 to 26. 
Of the seventeen new classes, five were authorized last year for the fall of 
1920 and provision must be made for such classes for 1921. The request 
accordingly involves a provision for 12 additional classes for 1921. 

The requests for the organization of classes for these children are 
many and urgent. A survey conducted in the third, seventh and seven- 
teenth school districts in 1919 disclosed the fact that there were 476 cardiacs 
in 13 schools in the seventh district and 315 in 14 schools in the seventeenth 
district. 

The pupils work under careful supervision by doctors and nurses with 
a modified school programme and in classrooms located in the lower floors 
of the school buildings so as to cause a minimum of stair climbing. The 
pupils in these classes represent children who have extreme organic affec- 
tions. 

Classes for Crippled Children 

The budget estimate includes an item for 21 additional classes for 
crippled children above the 76 classes conducted at present (March 31, 1920), 
in schools and hospitals. Of the 21 additional classes, six for which 
budgetary provision was made for 1920 are to be organized this fall and 
fifteen new classes are requested for 1921. 

The new classes are planned for districts where present registers exceed 
seating capacity and to provide special accommodations fcg^ the care of 
poliomyelitis cases resulting from the recent epidemic who will arrive at 
school age during 1921.- A file of all such cases in the five boroughs is 
kept at the office of the Director of Physical Training. 

Our present organization of these classes is inadequate to take care of 
all the crippled children for whom provision should be made. The organi- 
zation of additional classes is retarded by the lack of schoolroom accommo- 
dations. More classes are needed but particularly in the congested neigh- 
borhoods where the school accommodations are inadequate to provide for 
the normal children. 

Equipment is requested for the new classes both in hospitals and in 



24 

schools and also for replacements in present classes. Special types of 
adjustable furniture are needed, which makes it posible to seat these chil- 
dren, many of whom wear braces, plaster casts, etc., with the minimum of 
discomfort. 

For the more severely handicapped of these children, transportation 
by stage must be provided. This item is probably the largest single item of 
expense incurred in this activity. For 1921 $155,098 is requested for trans- 
portation. 

Home TcacJiers for Helpless Cripples 

The terrible scourge of poliomyelitis left in its wake among our children 
hundreds of cripples, many of whom were so badly afflicted as to be help- 
lessly bedridden or confined to their homes. For the instruction of these 
unfortunates at their homes, the Board of Education in 1919 authorized 
the employment of twenty substitute teachers. These teachers visit the 
children on three or four days a week and give instruction suited to the 
progress of the child. Their work has been most successful and has been 
received most enthusiastically by children and parents. 

For 1921 the sum of $48,000 is requested, which will allow a slight 
extension of the service. 

Ungraded Classes 

The ungraded classes are conducted for those children who have been 
adjudged mental defectives. Such children under the conditions obtaining 
in regular classes are capable of very little academic instruction. They not 
only become hopelessly retarded but also cause general retardation, inasmuch 
as they are handicaps to the efforts of the teacher with the normal children. 
It is necessary, therefore, for the sake of the mental defectives themselves 
and also for the sake of the rest of the class, to segregate them into special 
classes. 

The work in the ungraded classes is confined to such subjects and 
activities as are suitable for the pupils. 

On March 31, 1920, there were 248 ungraded classes with a register of 
4,021. Budgetary provision for twenty-seven additional classes for 1921 is 
requested. Of the twenty-seven additional classes, eighteen are to be 
formed this fall, provision for them having been included in the budget 
last year and nine new classes are planned for 1921. 

Teachers of Speech Improvement 

The budget estimate includes an item calling for financial provision for 
1921 for nine additional teachers of Speech Improvement. At the present 
time there are 27 such special teachers. 

Each of these teachers is assigned to three schools and gives instruction 
and curative treatment to special groups of pupils who have speech defects, 
such as stammering, stuttering, lisping, lolling, etc. The aim of the work- 
is preventive as well as remedial and with this in view the speech improve- 
ment teacher has conferences with regular class teachers, gives model lessons 
and assistance, visits the classroom and examines pupils with reference to 
their speech. 

From reports received from the principals of schools, the following 
figures were compiled showing the number of pupils who need special 
attention. 



25 



Table VII — Number of Pupils With Speech Defects 



Elementary Schools. 


Register. 


Number 

with 
Speech 
Defects. 


Number 
Receiving 

Special 
Instruction. 


Manhattan 

The Bronx 

Brooklyn 

Queens 

Richmond 


269,679 

108,823 

291,729 

66,748 

16,754 


17,563 
4,837 

11,806 

2,581 

828 


3,029 
174 

1,374 
786 






Total 


753,733 


37,615 


5,363 


High Schools 


71,444 


3,728 


363 


Grand Total 


825,177 


41,343 


5,726 







The work of the present corps has been very efficient and successful. 
Many children are cured, the defects of others have been alleviated, their 
regular class work has shown great improvement, and in numerous cases 
the conduct of the pupil has become markedly better. 

The problem in our city of training pupils to use their voices properly is 
complicated by the presence of so many yoimgsters born in foreign countries 
or of foreign parentage. The activity merits the fullest possible financial 
support. 

4. Prevocational Courses in Elementary Schools 



Budget Items 





1921 
Estimate. 


1920 
Apportion- 
ment. 


Increase. 


Estimate 
Schedule 
Number. 


I — General School Fund — 

Teachers' Salaries 

II — Special School Fund — 

1. Supplies & Equipment 

2. Special Repairs, Replace- 
ments, Alterations and Bet- 
terments . .... 


Included un 
$93,126 80 

48,851 00 


der Elementa 

$28,595 57 


ry School Ite 
$64,531 23 

48,851 00 


ms 
No. 17, p. 37 

No. 55, p. 52 








Total. .• 


$141,977 80 


$28,595 57 


$113,382 23 





The Board of Education has conducted prevocational courses in a 
number of elementary schools since 1914. 

A prevocational school is a school which offers to pupils in the seventh 
and eighth years an opportunity to engage in industrial work, and thereby 
to secure a type of experience in the elements of fundamental trades and an 
insight into conditions of industry under which such work must be carried 



26 

on. The aim of these courses is not to prepare pupils directly for the trades, 
but to provide such experience as will help the pupil to discover whether 
or not his inclinations and abilities fit him to do industral work. 

The prevocational schools were organized because it was recognized 
that an elementary education covering a span of eight years and devoted 
almost exclusively to bookish instruction is not the type best fitted to the 
needs of all elementary school pupils, who differ greatly, both in native 
interests and abilities, and a vast number of whom, despite their early 
ambitions to enter the professions, finally pass into industrial life. 

In the prevocational schools differentiated courses are oft'ered for selec- 
tion by the adolescent pupils of the seventh and eighth grades. Besides the 
regular academic work instruction is offered in these schools in the fol- 
lowing- : 



Boys 
Printing 
Plumbing 
Sheet Metal 
Machine Shop 
Trade Drawing 
Joinery 

Sign Painting and Lettering 
Garment Design 
Electric Wiring 



Girls 
Bookbinding 
Dressmaking 
Novelty Work 
Power Machine 
Cooking 
Art Weaving 
Homemaking 
Millinery 
Trade Drawing- 



Note — All subjects are not carried on in each school. 

There are at present nine schools which offer prevocational work. It 
is planned to extend the activity to seven additional schools. The exten- 
sion requires the establishment of shops, involving the purchase of equip- 
ment and supplies. For this the budget item calls for $20,589.62 for exist- 
ing shops and $71,737.18 for proposed new shops in the seven additional 
schools. (For details, see Schedule No. 17, page 37.) 

The installation of shop equipment necessitates classroom changes and 
alterations and involves the expenditure of $48,851, for which an item is 
included. (Schedule 55, page 52.) 



Intermediate Schools 
Budget Items 





1921 
Estimate. 


1920 
Apportion- 
ment. 


Increase. 


Estimate 
Schedule 
Number. 


I — General School Fund — 

Teachers' Salaries 

II — Special School Fund — 

1. Educational Supplies & 

Equipment 

2. Classroom Equipment — 
Furniture and Special Re- 
pairs and replacements 


Included und 

$321,395 20 

159,437 30 


er Elementar 
$163,066 00 
35,955 00 


y Schools 
$158,329 20 
123,482 30 


No. 18, p. 38 
No. 39, p. 46 


Total 


$480,832 50 


$199,021 00 


$281,811 50 









27 

During the last two years the Board of Education has organized a 
number of intermediate schools. Such schools are for the present still 
classified as elementary organizations, inasmuch as they are still dealing, 
for the large part, with pupils of elementary grade. It is planned, however, 
to set up this type of school as a separate organization, and some of the 
items of maintenance and operation appear in the budget estimate as sepa- 
rate items. 

What is an Intermediate School f 

An Intermediate School (or Junior High School) is a school that in- 
cludes in one organization the seventh, eighth and ninth years of school life, 
i. e., the last two years of the elementary school and the first year of the 
high school. 

In. organizing an intermediate school the seventh and eighth year pupils 
of a number of schools in the same neighborhood are placed in one central 
school. These pupils, instead of leaving the school at the completion of the 
8B grade, to attend a high school that may be situated at a considerable 
distance from their homes, are given an opportunity of taking the first year 
high school work in the same school, in the intermediate or "neighborhood 
high school" as it is called. 

Important Educational Advantages of the Intermediate School Plan 

Among the most important educational advantages of this new plan of 
organization are the following: 

1. Opportunities are given to pupils to obtain the first year of 
high school instruction in an intermediate school — almost at the doors 
of their homes; pupils are not subjected to the difficulties, expense 
and loss of time necessitated by traveling considerable distances in 
crowded cars ; they may have their hot lunch at home. Consequently 
the number of pupils remaining in school for the ninth year is being 
greatly increased by this plan — a most desirable result, when it is 
realized that investigations indicated that the pupils' learning ability is 
highest at fourteen years of age — the time at which so many leave 
school. 

2. A broader and richer course of study is made possible by 
giving pupils an opportunity of choosing either a general course, a 
commercial course, or an industrial course, in accordance with their 
abilities or their future work in life, and by teaching some secondary 
school subjects earlier in the course. 

Commercial arithmetic, bookkeeping, typewriting, stenography, 
industries of New York, commercial geography, various forms of 
vocational work, etc., which are not taught in the regular 8B schools, 
are taught in intermediate schools. 

3. A more efificient and economical use can be made of the 
school building and classrooms on account of the large number of 
pupils in the upper grades. By making the classes larger many vacant 
sittings can be saved and the facilities offered by workshops, cooking 
rooms, gymnasiums, etc., can be used to better advantages than in 
regular 8B schools. 



28 

4. Exceptionally bright pupils can be grouped into rapid 
advancement classes, so that the work of the seventh and eighth and 
ninth years may be done in two years — thereby saving not only a 
considerable sum of money but one year in a pupil's school life. At 
the present time approximately 8,000 pupils are enrolled in the rapid 
advancement classes in intermediate schools. 

5. The intermediate type of organization permits of a type of 
school management, the adoption of a type of disciplinary control and 
the introduction of such methods of teaching as are more adapted to 
the instruction and training of adolescent pupils. 

Present and Proposed Organisation 

At present there are 32 intermediate schools. It is planned to organize 
9 more during 1921. 

At the present time, with the exception of two schools, the intermediate 
schools still retain as part of their organization classes in elementary grades 
from lA to 6B, the same principal supervising both groups of classes. 

Budget Requests 

(a) Teachers — The request for the additional teachers required by the 
organization of additional schools and by the organization of additional ninth 
year classes in intermediate schools already established is included in the 
item for enlargement of elementary schools. (See Schedules 4 and 5, on 
pages 19 and 20.) 

It is estimated that of the 298 new positions requested 68 will be 
required for the fall term of 1920 for intermediate grades, and of the 400 
new positions requested for 1921, 88 will be needed for such classes. 

(b) Special School Fund Requests — For such items of maintenance and 
operation, other than teachers' salaries, as are included under the Special 
School Fund, $480,832.50 is requested, as follows : 

1. Supplies and Equipinent. (See Schedule 18, page 38.) 

For text books and supplies, $162,262.20 is requested for pupils in 
Grades 7 A to 8B, inclusive. This item for these grades is not included under 
the regular item for general educational supplies and equipment. 

A higher per capita cost for the 8A and 8B was taken as a base of 
estimating requirements for pupils in schools to be organized. In the 8A 
grade the differentiated courses of study are begun in intermediate schools 
and the initial cost of text books and supplies is greater than the annual 
replacement cost. 

For pupils in the 9A and 9B grades, $128,294 is requested for text 
books and supplies for schools already in operation, and $30,389 for schools 
to be organized. 

In considering the above requests, it is to be borne in mind that the 
amounts included represent in many items the costs of initial installation 
involved in the organization of a new activity. In such cases the cost is 
higher than that for replacement or maintenance after organization. 

The request includes an item for books for class librar'es. Such class 
libraries are required in order to obtain the approval by the Regents of the 
courses in intermediate schools, as equivalent to high school courses. The 
same holds true of the item for apparatus and equipment for teaching science. 



29 

2. Classroom Equipment, Alterations, Furniture, etc. 

For these purposes, $194,507.50 was originally recommended, which 
amount was reduced at the Budget conferences of the Board of Education 
to $159,437.30. The details are given in the Budget Estimate Schedule No. 
39, page 46. The following items are involved : 

(a) The equipment of Typewriting Rooms with tables and stools 
for the commercial courses, involving $4,560. 

(b) The equipment of Library Rooms, in order that provision 
for library work may be made to comply with the requirements of the 
Regents for approval of courses. This item involves $24,000. 

(c) The installation of Science Rooms, required for the same 
purpose, and involving $27,365. 

(d) Provision for supplying furniture in regular classrooms, 
to accommodate the larger and older pupils in intermediate schools, 
and for changing furniture in schools selected for reorganization, 
involving $57,750. 

(e) Special repairs and replacements involving $80,832.50, made 
necessary by the introduction of the new type of organization. 

For the above items a lump sum of $159,437.30 was included. The 
items enumerated are special items in the sense that they are made necessary 
by the reorganization involved in changing a school from the regular type 
of school to that of an intermediate school. For these schools such items 
will not recur in succeeding years. 



30 



V— DAY HIGH SCHOOLS' 
Budget Items 



1921 
Estimate 



1920 
Apportion- 
ment 



Increase 



Estimate 
Schedule 
Number 



I — General School Fund — 
Salaries — 

1. Present Organization — 

(a) Persons permanently 
employed March 31, 
1920 

(b) Vacancies existing 
March 31, 1920 

2. Enlargement on account 
of increased register — 

(a) During fall of 1920. 

(b) During 1921. 

3. Substitute Service dur 
ing 1921 

4. Special Items — 
Teachers of Speech Im 

provement (3) 

Teachers of Home Nurs 



Gross Total 

Deduct Estimated Shrink- 
ages, Accruals, etc 



Net Total . 



II — Special School Fund — 
General Educational Sup- 
plies and Equipment. . . . 
Vocational and Technical 
Supplies and Equipment 

for High Schools 

Equipment for Home Nurs- 
ing Courses (New) 

Total 



),252,394 29 
398,840 00 



135,210 00 
240,778 10 

185,464 00 



6,975 00 
20,625 00 



0,240,186 39 

322,427 58 



),917,758 81 



$377,968 20 

267,000 00 
1,000 00 



3,819,154 57 



*$342,206 14 



5,098,604 24 



$645,968 20 



$35,762 06 



1.000 00 



No. 2-p. 18 
No. 3-p. 18 



No. 4-p. 20 
No. 5-p. 21 

No. 6-p. 22 



No. 5-p. 21 
No. 5-p. 21 



No. 1-p. 10 



No. 15-p. 36 

No. 16-p. 37 
No. 29-p. 42 



*Included in lump sum appropriation for General Education Supplies and Equipment. The amount 
indicated above is the amount requested. 

The second major budget item is the request for funds for the Day- 
High Schools. For Day High Schools $6,819,154.57 was apportioned in 
the 1920 funds which was 15.37 per cent, of the total General School Fund 
for 1920. 

For 1921 $9,970,878.81 is requested for salaries of teachers and prin- 
cipals, et al. in high schools including co-operative courses. This forms 
13.76 per cent, of the entire General School Fund request for 1921. 

As in the case of the elementary schools the budget estimate for 1921 
is divided into the following items : 

1. The amount required for teachers permanently employed on 
March 31, 1920. 



31 

2. The amount required for persons to fill vacancies' existing 
on March 31, 1920. 

3. The amount required for new positions required to be estab- 
lished in the fall of 1920 and during 1921 to take care of increased 
registration. 

4. The amount required for substitute service during 1921 and 
for teachers in training. 

5. Miscellaneous special items. 

1. Teachers Permanently Employed and Vacancies Existing on March 31, 

1920 

The item for teachers permanently employed is supported by detailed 
schedules published separately which were prepared by the Auditor and 
based upon a name by name computation of teachers in each school. This 
item for 1921 calls for $9,252,394.29 or 90.3 per cent of the gross total for 
High Schools. The cost of salaries for persons already appointed or to be 
appointed to fill vacancies existing on March 31, 1920, calls for $398,840 
or 3.89 per cent, of the gross total request for teachers' salaries. 

2. Substitute Service and Cost of Teachers in Training 

This item calls for $185,464, which is 1.8 per cent, of the gross total 
of the General School Fund request for high schools. 

3. Enlargement of System 

The various items for enlargement of the service in high schools total 
$403,488.10, which is 3.9 per cent of the high school total. 

(a) Neti' Positions Needed to Take Care of Increased Register 

The item for the enlargement of the system provides for the new posi- 
tions necessary to care for the increased registration in the fall of 1920 
and during 1921. The following table shows the number of positions for 
which funds are requested. Detailed data in support of this request appear 
in Document B included as an appendix to the Budget Estimate. 

Table VIII — Number of New Positions Needed in High Schools 



Position. 


Fall 
1920. 


Spring 
1921. 


Fall 
1921. 


Total. 


For New 
Cooperative 
High School 
Fall, 1920. 


Principal 

First Assistant 


1 

8 

32 

1 
1 


15 

80 

2 

1 

3 


2 

48 


1 

25 

160 

3 

2 

3 


1 
3 


Assistant Teacher 

Laboratory Assistant 

Library Assistant 

Clerical Assistant 


8 

i 


Total . . . 


43 


101 


50 


194 


13* 









*PIus 14 coordinators who are now assigned to various high schools. 



32 

The estimate of teachers needed is made up from the individual esti- 
mates of the principals of the several high schools as amended by the 
Associate Superintendent in charge of high schools and as modified by the 
Superintendent of Schools. The estimates submitted by the principals were 
materially reduced (see Document B). The estimates for 40 teaching 
positions (assistants and first assistants) for the fall of 1920 has been made 
on the application of the "pupil period load," allowance being made for 
the probable increase in register in each school. 

The "pupil period load" in a subject is obtained by multiplying the 
number of pupils taught by the number of periods per week the subject 
is offered. For example, assume in a given school in the subject of 
mathematics that 1,200 pupils are receiving instruction in the subject for 
five periods per week. The aggregate pupil period load in this subject 
would be 6,000. Assume eight teachers assigned to this subject. The pupil 
period load per teacher would then be 6,000 -f- 8 or 750 pupil periods. 

To obtain the pupil period load per teacher for a school, the aggregate 
number of pupil periods is divided by the number of teachers in the school. 

The following standards of organization were adopted several years 
ago after careful study and have since been applied. 

Standards of Organisation 



Position. 


Requirements. 


For each assistant — 

(a) In schools of less than 2,000 pupils. . . 

(b) In schools of 2,000 or more pupils, . . . 
For physical training teachers 


660 pupil periods p;r teacher 

750 pupil periods per teacher 

1,200 pupil periods per teacher 


For music teachers 

For clerical assistants 


1 teacher for every 1,350 pupils 
1 teacher for every 700 pup'ls 





The basis for the allowance of first assistants is as follows : Five 
first assistants for the first thousand pupils, one additional first assistant 
for each five hundred pupils up to four thousand and thereafter one first 
assistant for every 700 pupils. 

The estimate of 145 teaching positions for 1921, 95 for the spriu'- 
term and 50 for the fall term, is based upon a probable increase in registni 
lion of 4,000 pupils. Figure 6 shows the registration as of March '" 
and October 31 for the period of 1909 to 1920. During the past thr 
years the registration in high schools has remained practically the sai^ 
although the annual increase in other years has been as high as 24 pe ■ 
cent. It is estimated that there will be an increase of 4.000 or 5.7 per cer^ 
during 1921. This is at a rate lower than the average rate per cent. - 
increase during the normal years preceding 1916. 

(b) Co-operative High School 

For some years past co-operative courses have been conducted in the 
high schools. In these courses the students are divided into two groups. 
While one of these groups is in the classroom receiving instruction the 



33 

other group is engaged in practical work in industrial, commercial and 
manufacturing establishments, related to the courses such students are pur- 
suing. At the end of two weeks the groups alternate. 

Teachers are assigned as "co-ordinators" to supervise the work of 
the students in the outside establishments, to see that adequate opportunity- 
is afforded the students for proper training, and that the pupils are not 
exploited and also to obtain information and data upon which to base any 
adjustments of classroom instruction to practical work that may be found 
desirable. The students as a result receive valuable practical training in 
industrial establishments that vitalizes the classroom instruction and gives 
it concrete content. 

The co-operative plan incidentally serves to increase the accommoda- 
tions in high schools and to reduce the cost of instruction for supplies and 
equipment. In order to concentrate the activity for purposes of better 
administration the Board of Superintendents with the approval of the Board 
of Education has organized for the fall of 1920 the co-operative high 
school, bringing together into one organization the students enrolled in co- 
operative courses in the different high schools. This change in organiza- 
tion will not only effect some economy but will also assure better adminis- 
tration, closer supervision of pupils and greater educational results. 

The new organization will require one principal, one clerical assistant 
and twenty-five teachers. Of the twenty-five teachers included, fourteen 
already employed as co-ordinators are to be assigned from the different 
high schools to the Co-operative High School. This necessitates the 
creation of thirteen new positions, as follows : one principal, one clerical 
assistant, three first assistants and eight assistant teachers, involving a cost 
of $35,450, which item is included in the item for enlargement of system 
during the fall of 1920. 

(c) Special Items 

The budget request includes two new items, (a) for three teachers of 
speech improvement and (b) for nine teachers of home nursing. 

The services of speech improvement teachers are greatly needed in the 
high school to extend to the high schools the advantages accruing from this 
type of instruction now carried on in the elementary schools. There are 
many students in our high schools who are afflicted with speech defects, 
which in a great many cases are remediable under proper treatment. The 
possession of a speech defect is not only a source of acute embarrassment 
to the pupil but is also a cause for poor work and lack of progress in all 
school work. The work to be carried on will be not only curative but 
preventive. The need for these teachers is pressing. 

The home nursing teachers are needed to carry on the work of con- 
ducting the courses in home nursing in girls' classes, that have been given 
for several years by the Red Cross. This type of instruction, begun as an 
experiment by the Red Cross several years ago under the emergent epidemic 
conditions then existing with the accompanying shortage of nurses, has 
proven most successful and worth while. The courses are not intended to 
turn out trained nurses but aim to give each girl that insight into the home 
care of the sick that should form part of her training. Such training is as 
essential as skill in domestic science or domestic arts and other home- 
making subjects and possesses a most practical value. The nine teachers 



34 

requested will continue already organized courses. For supplies and equip- 
ment for this work $1,000 is requested. 

4. Vocational and Technical Supplies and Equipment. (Schedule No. 16, 
page 37.) 

For vocational and technical courses conducted in our high schools 
$267,000 is requested. Of this amount $29,000 is for existing activities and 
$238,000 represents the sum needed for equipment in the Manual Training 
High School for the modified technical courses which have been approved 
for that school. This item -was included although contingent upon the 
acquisition of floor space and accommodations to permit the extension of 
the activity in that school. 



35 

VI— TRAINING SCHOOLS FOR TEACHERS 
Budget Items 1921 



Amount 



Estimate 

Schedule 

No. 



I General School Fund — 



1. For salaries of persons permanently 

employed on March 31, 1920. . . $368,997 28 No. 2-page 18 

2. For salaries of persons already ap- 

pointed or to be appointed to 
' fill vacancies existing on March 

31, 1920 9,100 00 No. 3-page 19 

3. For substitute service for absent 

teachers 1,552 00 No. 6-page 22 

$379,649 28 

4. For salary of one teacher of Speech 

Improvement (new) 2,291 66 No. 5-page 21 

$381,940 94 
Less estimated shrinkages 

and accruals 12,608 68 



$369,332 26 



In order to provide a sufficient supply of properly trained teachers in 
our schools the Board of Education maintains three training schools for 
teachers. The request for salaries for the instructors in such institutions 
amounts to 0.51 per cent, of the total General School Fund. 

Owing to the attractive compensation paid during the past few years 
in all types of industrial and commercial work, the number of applicants for 
admission to the training schools has fallen off materially. For the fall 
term of 1920 a considerable increase in the register is already reported based 
on tentative figures as to applications for admission obtained before the 
close of school. 

It is expected that the registration will increase considerably during 
1921 owing to the higher salary schedules recently going into effect. The 
request submitted does not ask for any additional teachers with the excep- 
tion of one teacher of speech improvement. It is proposed to appoint such 
teacher to the training schools not only to improve the speech of those of 
the students who may be suffering from speech defects which, if uncorrected, 
would prevent their success as applicants for teacher's license, but also to 
institute instruction among the prospective teachers as to methods of cor- 
recting or preventing such speech defects among school children. 



Z6 

VII— VOCATIONAL SCHOOLS 
Budget Items 



' 


1921 
Estimate. 


1920 
Apportion- 
ment. 


Increase. 


Estimate 
Schedule 
Number. 


I — General School Fund — 
Salaries — 

1. For persons permanently 
employed March 31, 1920. . 

2. For persons to fill vacancies 
existing on March 31, 1920 . . 

3. For new positions — 

(a) For Fall of 1920 

(b) For 1921 


$414,988 33 

99,339 20 

32,669 60 
29,604 54 






No. 2-p. 18 






No. 3-p. 19 






No. 4-p. 20 






No. 5-p. 21 








Gross Total 


$576,601 67 
14,180 01 








Deduct shrinkages and ac- 














Net Total 


$562,421 66 


$367,345 07 


$195,076 59 




II — Special School Fund — ■ 

1. Supplies and equipment . . . 

2. Repairs, replacements, al- 


$150,000 00 
58,959 00 


$69,416 25 


$80,583 75 
58,959 00 


No. 16-p. 37 
No. 54-p. 52 








Total 


$208,959 00 


$69,416 25 


$139,542 75 









The importance of vocational education, particularly at the present 
time, makes unnecessary any extended statement in support of our present 
activity. 

While provisions for vocational education in this as in other cities are 
comparatively recent, such work is now receiving much greater emphasis. 
The great World War in which not merely armies but in which whole 
nations were engaged, demonstrated beyond all cavil the importance of an 
efficient industrial democracy proudly conscious of its responsibilities. It 
is not too much to say that this war in defense of democratic ideals was 
won not merely on the battle line but also behind the line in the cultivated 
field, the deep-driven mine, the smooth moving machinery of the mill and 
the factory, and the vibrant lines of communication and transportation. 
Our city's need, our nation's need for the type of worker whose mentality 
is supplemented by manual skill and whose knowledge has a degree of reality 
that book study alone will never give, has awakened laymen as well as 
educators to a keener interest in vocational schooling than has found ex- 
pression heretofore. 

The conscious emphasis placed now upon vocational education is • 
ascribed by Prof. Dewey to the following causes among others : 

(a) " In the first place there is an increased esteem in demo- 
cratic communities of whatever has to do with manual labor, com- 
mercial occupations, and the rendering of tangible service to society. 



(b) " In the second place those vocations which are specifically 
industrial have gained tremendously in importance in the last century 
and a half. Manufacturing and commerce are no longer domestic 
and local but are world-wide. They engage the best energies of an 
increasingly large number of persons. The problem of social adjust- 
ment is openly industrial, having to do with the relation of Capital 

and Labor. ... 

(c) "In the third place, industry has ceased to be essentially an 
empirical rule of thumb procedure handed down by custom. Its 
technique is now technological, that is to say, based upon machinery 
resulting from discoveries in mathematics, physics, chemistry and 
bacteriology. As a consequence industrial occupations have uni- 
formly greater intellectual content and infinitely larger cultural possi- 
bilities than they used to possess." 

It was the necessity for materially increasing the opportunities for 
vocational education offered in our public schools that led the Board of 
Superintendents to recommend and the Board of Education to approve the 
following programme of expansion in this activity : 

"Whereas, During the past two years no provision has been made 
for the extension of the industrial training of the pupils within our 
system, although the needs of the said pupils, and also the urgent 
needs of the nation, have demanded the adoption of a comprehensive 
programme for the extension of vocational training in fundamental 
industries, the following resolution is offered for adoption : 

"Resolved, That the Board of Superintendents recommends to 
the Board of Education that financial provision be made in the budget 
for the year 1918 for the purchase of sites, the erection, equipment 
and alteration of buildings to provide the following vocational schools, 
or the improvement of existing schools in the boroughs indicated : 

(a) One vocational school for boys in the Borough of The 
Bronx. 

(b) One vocational school for girls in Brooklyn. 

(c) One vocational school for boys in Greenpoint. 

(d) The betterment of the Murray Hill Vocational School 
through the supply of (additional equipment and the erection of) a 
new building on the present site. 

(e) The betterment and enlargement of the Brooklyn Voca- 
tional School for Boys through the supply of additional equipment 
and the erection of a suitable building. 

The above programme was approved by the Board of Education by 
formal resolution. Most of the programme remains to be carried out. Ad- 
ditional accommodations have been obtained for the Brooklyn school but 
that is all. 

At the present time there are five vocational and trade schools as 
follows : 

1. Vocational School for Boys. 

2. Murray Hill Vocational School. 

3. Brooklyn Vocational School. 

4. Textile School. 

5. Manhattan Trade School for Girls. 



38 



The following table shows the trade courses taught, 
dition to certain academic subjects which are prescribed. 



These are in ad- 



Vocational School 




Brooklyn 




Manhattan 


, for Boys. 


Murray Hill. 


Vocational. 


Textile. 


Trade, Girls. 


Architec. Drawing 


Architec. Drawing 


Elect. Wiring 


General Textiles 


Dressmaking 


Carpentry 


Auto. Repair 


Machine Shop 


Weaving and 


Millinery 


Comm'l Design 


Elect. Wiring 


Printing 


Design 


Lampshade 


Elect. Wiring 


Mechan. Drawing 


Mechan. Drawing 


Mill Wrighting 


Making 


Machine Shop 


Machine Shop 


Sheet Metal 


Marketing of 


Artificial Flowers 


Mechan. Drawing 


Practice 


Woodwork 


Textiles 


ISTovelty Work 


Modeling 


Plumbing 


Garment Design 


Applied Textile 


Garment Operat- 


Pattern Making 


Woodwork 




Design 


ing 


Plumbing 


Printing 




Knitting 


Straw Hat 


Printing 


Sign Painting 






Operating 


Sheet Metal 








Embroidery 


Sign Painting 








Operating 



The pupils who are admitted to these schools are elementary school 
graduates or pupils who are fourteen and who successfully pass an examina- 
tion in common branches to the satisfaction of the principal. 

The register of the various schools is shown (for March 31 and Octo- 
ber 31) in the following table: 

Table IX — Register in Vocational Schools on March 31 



March 31 


Vocational School 
For Boys 


Man. Trade School 
For Girls 


Murray Hill 
Vocational School 


Brooklyn 
Vocational School 




, Reg. 


Inc. 


% Inc. 


Reg. 


Inc. 


% Inc. 


Reg. 


Inc. 


% Inc. 


Reg. 


Inc. 


% Inc. 


1910 


216 
382 
529 
547 
710 
882 
842 
675 
674 
649 
721 


166 

147 

18 

163 

172 

*40 

*167 

*1 

*25 

72 


76 '.9 
38.5 
3.4 
29.8 
24.2 
*4.5 
*19.8 
*0.1 
*3.7 
11.1 


■351 
420 
508 
537 
703 
783 
763 
590 
715 
838 


' 69 

88 

29 

166 

80 

*20 

*173 

125 

123 


19.7 
20.9 
5.7 
30.9 
11.4 
*2.5 
*22.7 
21.2 
17.2 


.... 
'iii 

268 
270 
326 
406 
424 
436 


'147 
2 
56 
80 
18 
12 


121.5 

0.7 

20.7 

24.5 

4.4 

2.8 


'276 
323 
431 
488 
519 






1911 










1912 




1913 




1914 




1915 




1916 




1917 


47 

108 

57 

31 


17.0 


1918 


33.4 


1919 


10.9 


1920 


6.4 













*Decrease. 



Table X — Register in Vocational Schools on October 31 



October 31 


Vocational School 
For Boys 


Man. Trade School 
For Girls 


Murray Hill 
Vocational School 


Brooklyn 
Vocational School 




Reg. 


Inc. 


% Inc. 


Reg. 


Inc. 


% Inc. 


Reg. 


Inc. 


% Inc. 


Reg. 


Inc. 


%Inc 


1909 


116 

245 
431 
478 
556 
773 
862 
787 
617 
525 
586 


"i29 
186 

47 

78 
217 

89 

*75 

*170 

*92 

61 


liiii 

75.9 
10.9 
16.3 
39.0 
11.5 
*8.7 
*21.6 
*14.9 
11.6 


'293- 
420 
431 
529 
591 
687 
660 
564 
580 
614 


"ill 
11 
98 
62 
96 
*27 
*96 
16 
34 


43.3 

2.6 

22.7 

11.7 

16.2 

*3.9 

*14.5 

2.8 

5.9 


162 
209 
249 
287 
385 
432 


■ 47 
40 
38 
98 

47 


28.2 
19.0 
15.3 
34.1 
12.3 


192 
293 
305 
456 
463 






1910 












1911 




1912 




1913 




1914 




1915 




1916 


101 

12 
151 

7 


52 6 


1917 


4 1 


1918 


49.5 


1919 


1 ..S 















*Decrease. 



39 

Budget Requests 

For salaries of teachers et al. in the Vocational Schools the net amount 
requested is $562,421.66 or 0.79 per cent, of the total General School Fund. 

Of this gross amount requested for teachers' salaries $514,327.53 is to 
provide for the present organization, i. e., persons permanently employed or 
to be appointed to fill existing vacancies. The item for new positions in- 
volves $62,274.14 or 10.8 per cent, of the gross amount for teachers' salaries 
in these schools. The new positions requested are as follows : 

Table XI — New Positions Needed in Vocational Schools 





For Fall of 1920. 


For 1921. 






Voca- 
tional. 


Non- 
Voca- 
tional. 


Total. 


Voca- 
tional. 


Non- 
Voca- 
tional. 


Phy. 
Trg. 


Total. 


Vocational School 

for Boys 

Murray Hill .... 
M anhattanTrade 
Bklyn.Vocational 
Textile School. . . 


2 

7 

5 


1 


2 

7 

6 


'2 
8 
7 
3 


"2 
1 


1 
1 


2 

8 

10 

5 


Totals 


14 


1 


15 


20 


3 


2 


25 


See* Estimate 
Scheidulesfor 
details. 


\ No. 4, page 20. 


No. 5, page 21. 





Manhattan Trade 

The fifteen new positions included for the Manhattan Trade 
School for Girls are needed for increased register in present activi- 
ties. The growth of the school was retarded for years by inadequate 
accommodations. Since the opening of the new school building, the 
registration has shown an increase and for October, 1921, it will be 
according to an estimate of the principal, 1,200 pupils. 

Murray Hill 

The four positions included for this school are for the extension 
of present activities. 

Brooklyn Vocational 

Ten new positions are provided for in the items included in the 
budget estimate. Of the ten positions, eight are contingent upon 
securing additional accommodations on the sixth floor of the Gary 
Building. The necessary lease has been signed and the rooms will 
be ready for occupancy on February 1, 1921. The remaining two 
positions are contingent upon securing quarters in an elementary 
school building in the vicinity of the Gary Building. 



40 

Textile School 

This school was opened in November, 1919, with a register of 
83. By March the register had increased to 169, and by October 
of this year the principal expects the register will be 500. 

State Aid 

For the encouragement of vocational education and in recognition of 
its responsibility for providing educational opportunities to the industrial 
workers of the community, the State provides financial aid to the extent 
of one half of the amounts paid for teachers' salaries not exceeding one 
thousand dollars. 

The amount to be received from the State for the last school year for 
all day teachers of vocational or industrial subjects has been estimated at 
$312,008,85. 

Supplies and Equipment — Schedule 16, Page 37. 

For this purpose provision has been requested to the extent of $150,000. 
Of this sum $100,000 is for existing activities involving an increase of 
$30,583.75 over the apportionment for 1920 and $50,000 is for supplies and 
equipment for the new vocational school which it is planned to organize 
in the Borough of Richmond. This is contingent upon securing suitable 
building accommodations. It is expected that such accommodations will be 
obtained inasmuch as the Board of Education has had under consideration 
the purchase of an available factory and office building. 



I 

I 

5 

lU 

di 
o 



i: 
u 

5c 



iJ 

e 

O 

I 

z 



!5 



d ^ 



i5 

lU 
Ql 

o 



KJ 



D 
ID 

iL 



--O^cOOfONioOiOOO^oOa) 



•e^*0<0S»0(SJO- o o o 
tn (vj fO (VJ ^vDtt <^'^W — -r~ 



8 ffi 0^ ff^ o> ai o> 01 Q oi 0) o» cft oo o^O(no 0) o^ fli 0) oj 6^0^ 



42 

VIII TRUANT AND PARENTAL SCHOOLS 
Budget Items 





1921 
Estimate. 


1920 
Apportion- 
ment. 


Increase. 


Estimate 
Schedule 
Number. 


I — General School Fund — 
Teachers' Salaries — 
1. Persons permanently em- 
ployed 


$62,822 08 
9,252 00 

2,080 00 






No. 2-p. 18 
No. 3-p. 19 

No. 6-p. 22 


2. Persons to fill vacancies .... 






3. Substitutes for vacation 
periods of regular teachers. . 












Gross Total 


$74,154 08 
2,146 58 








Deduct estimated accruals, 
shrinkages, etc 














Net Total 


$72,007 50 

$93,994 01 
60,867 00 


$46,032 06 

$66,315 83 
39,962 00 


$25,975 44 

$27,678 18 
20,905 00 




II — Special School Fund — 

1. Supplies and Equipment. . . 

2. Salaries of Employees 


No. 14-p. 35 
No. 2-p. 3 


Total 


$154,861 01 


$106,277 83 


$48,583 18 





One of the groups of exceptional children for which New York makes 
provision is the truant and incorrigible pupil. For such pupils three schools 
are maintained, the New York Parental School, the Brooklyn Truant School 
and the Manhattan Truant School. 

These pupils, either because of bad habits resulting from defective 
mentality or defective bodily condition, or from unfortunate social environ- 
ment or the combined influence of both, are so vicious or unsocial in their 
behavior that it is necessary to place them under restraint in order to train 
them in habits of hygienic living and orderly behavior and in order to pro- 
tect normal children from contamination. 

Commitment to the truant or parental schools is employed as a last 
resort. At the present moment because of inadequate accommodations 
there are a great number of commitments unexecuted and a great number 
of pupils on parole. 

A careful consideration of the problem of the exceptional child con- 
vinces one that there will always be need of a system of parental and pro- 
bationary schools. 

Probationary schools should be established throughout the city in defi- 
nite relation to the needs of the school population. In such schools through 
compulsory attendance rigidly enforced, longer hours, a varied school cur- 
riculum including prevocational training and such coercive measures under 
wise limitation as may be deemed necessary, these exceptional pupils would 
be trained so that after a reasonable period they could be returned to the 
regular public school. The initial step in this matter has been taken and 
for the gradual development of such a system of schools financial pro- 
vision should be made just as soon as it is possible to relieve existing con- 
gestion and thus making buildings available for this purpose. 



43 

For the parental and truant schools the budget items call for no new 
teaching positions. For persons permanently employed and for those to be 
appointed to fill existing vacancies and for substitutes for regular teachers 
absent on vacation, $74,154.08 is required. 

For supplies and equipment and for food and maintenance of pupils, 
$93,944.01 is requested for 1921, involving an increase of $27,678.18 over 
the $66,315.83 allowed for 1920. The increasing cost of all articles which 
enter into the maintenance and care of resident pupils accounts for the 
increased cost. 



44 

IX COMPULSORY CONTINUATION SCHOOLS 
Budget Items 





1921 
Estimate 


1920 
Apportion- 
ment. 


Increase. 


Estimate 
Schedule 
Number. 


I — General School Fund — 

Salaries of Teachers, et al. — 

1. Permanently employed 

March 31, 1920 


$87,581 13 
56,450 00 

253,155 00 
577,250 93 

12,000 00 






No. 2-p. 18 
No. 8-p. 23 

No. 8-p. 23 

No. 8-p. 23 

No. 8-p-. 23 


2. Vacancies March 31, 1920.. 






3. Enlargement — 

(a) During fall of 1920 






(b) During 1921 






4. Supervisors in Special Sub- 
jects 












Gross Total 


$986,437 06 
2,992 69 








Less Accruals and Shrinkages. . 
















Net Total 


$983,444 37 


$125,431 62 


$858,012 75 








5. Teacher assigned as Assist- 
ant Director — position to be 
regularly established during 
1921 


$4,250 00 
















6. Attendance Officers — 
(a) Employed in 1920 


$70,628 00 
84,247 00 








(b) Additional for 1921. . .. 






No. 5-p. 22 








. 


$154,875 00 
















II — Special School Fund — 

1. Supplies and Equipment. . . 


$700,979 15 

65,194 80 

112,000 00 

165,905 00 






No. 19-p. 38 


2. Classroom Equipment 






No. 44-p. 49 
No. 44-p. 48 
No. 68-p. 55 


3. Building Alterations 






4. Rentals 














$1,044,078 95 

















Compulsory Continuation or Part-time Classes 
I — What is a Continuation or Part-time School or Cla^ssf 

Under the terms of the New York State Education Law a continuation 
or part-time school or class is a school or class for boys and girls between 
the ages of fourteen and eighteen years, who are not high school graduates 
and who have discontinued attendance upon the regular full time schools. 

vSuch a school or class provides instruction for not less than four and 
not more than eight hours per week for at least thirty-six weeks each year, 
on regular school days, between 8 o'clock a. m. and 5 o'clock p. m., in sub- 
jects which are designed to increase the civic and vocational intelligence of 
the pupils. 



45 

IX The law requires the establishment of continuation schools and classes. 

Chapter 531 of the Laws of 1919, amending the State Education Law, 

requires the organization and establishment of continuation classes and 

schools. 

Section 601, paragraph a: 

"Part-time or continuation schools shall be established in cities 
and school districts having a population of five thousand or more 
inhabitants. a. The board of education of each city and of each 
such school district in which there are twenty or more minors above 
the age of fourteen years and below the age of eighteen years, who 
are not in regular attendance upon instruction, shall estabHsh and 
maintain part-time or continuation schools or classes in which such 
minor shall receive instruction. Such schools or classes may be estab- 
Hshed in pubhc school buildings, in other buildings especially adapted 
for their operation, in manufacturing or mercantile establishments 
and in factories. Such schools or classes, wherever they are estab- 
Hshed or maintained, shall be under the control and management of 
the board of education and shall be a part of the public school system 
of the city or district which maintains them. Courses of study in 
private or parochial part-time or continuation schools or classes 
which meet the requirements of the statutes and the regulations pre- 
scribed thereunder may be approved by the Commissioner of Educa- 
tion and, when thus approved, attendance thereon shall be accepted 
for that required under this article." 

Section 601, paragraph b: 

"Such part-time or continuation schools or classes shall be main- 
tained each year during the full period of time which the pubhc 
schools of a city or district are in session. The sessions of such part- 
time or continuation schools or classes shall be on the regular school 
days and for as many hours between the hours of eight o'clock fore- 
noon and five o'clock afternoon as shall be necessary to provide the 
required instruction for such minors who reside in said city or 
district." 

Ill — The Establishment of Sufficient Classes and Schools to be Effected by 
September, 1925 
Section 601, paragraph d (Chapter 531, Laws of 1919), provides as 
follows : 

"The board of education of each city and of each such school 
district shall make necessary arrangements to begin to operate and 
maintain such part-time or continuation schools or classes, on the 
opening of the public schools in September, 1920, and shall annually 
thereafter in September open and maintain additional schools and 
classes, so that by the opening of the public schools in September, 
1925, a sufficient number of such schools shall have been estabhshed 
as to afford the required instruction under this article to those minors 
who are required to attend such schools or classes." 



46 

The Regents have adopted the following regulations relative to the 
initiation of the continuation schools. 

"For the purpose of initiating the required program of part-time 
schools local boards of education shall compel the attendance, com- 
mencing on September 1, 1920, on an equal basis and in partial ful- 
fillment of the terms of the law of a certain group or groups of 
children affected by the law, and shall annually thereafter in Septem- 
ber of each year compel the attendance of a certain additional group 
or groups of children, provided that by September, 1925, all children 
affected by the law shall be reached by compulsory regulations. Local 
boards of education may require the attendance of children upon 
part-time classes on the basis of any one of the four following plans : 

"a. Attendance required according to distribution in age groups. 
If this plan is adopted all children of a given age group shall be 
required to attend part-time school commencing in September, 1920, 
and annually thereafter additional groups of children of a given age 
shall be required to attend, so that by September, 1925, all children 
affected by the law shall be in attendance. Boards of education may 
require the attendance in any one year of one or more given age 
groups under this plan of enforcement. 

"b. Attendance required according to distribution as to educa- 
tional qualifications. If this plan of enforcement is adopted all 
children having given educational qualifications shall be required to 
attend part-time schools commencing in September, 1920, and annu- 
ally thereafter additional groups of such children shall be required 
to attend, so that by September, 1925, all children affected by the 
law shall be in attendance. Boards of education may require the 
attendance in any one year of one or more groups of children having 
given educational qualifications. 

"c. Attendance required according to distribution as to resi- 
dence or employment. If this plan is adopted all minors resident or 
employed in a given ward, district or part of a city or school district 
shall be required to attend in September, 1920, and annually there- 
after all minors resident or employed in certain other wards or dis- 
tricts or parts of the city shall be required to attend, so that by 
September, 1925, all minors resident or employed in the entire city 
or district are in attendance. 

"d. Attendance required according to age distribution and edu- 
cational qualifications. If this plan is adopted all children of a given 
age with given educational qualifications shall be required to attend in 
September, 1920, and annually thereafter certain additional groups 
of children having given age and educational qualifications shall be 
required to attend, so that by September, 1925, all children resident 
or employed in the entire city or district are in attendance." 

In compliance with the above regulations the Board of Education at its 
meeting of May 26, 1920, adopted the following plan: 

"a. On and after September 1, 1920, all such minors between 
the ages of fifteen and seventeen who have not completed the ele- 
mentary school course. 



47 

"b. On and after September 1, 1921, all such minors between 
the ages of fifteen and eighteen who have not completed the ele- 
mentary school course. 

"c. On and after September 1, 1922, all such minors between 
the ages of fifteen and eighteen who have not completed the ele- 
mentary school course, together with all such minors under fifteen 
who have completed the elementary school course. 

"d. On and after September 1, 1923, all such minors between 
the ages of fifteen and eighteen who have not completed the ele- 
mentary school course, together with all such minors under sixteen 
who have completed the elementary school course. 

"e. On and after September 1, 1924, all such minors between the 
ages of fifteen and eighteen who have not completed the elementary 
school course, together with all such minors under eighteen who have 
completed the elementary school course. 

Summary — "(a) Ages fifteen to seventeen — Pupils who have 
not completed the elementary school course. Time of beginning, 
September, 1920. 

"(b) Ages fifteen to eighteen — Pupils who have not completed 
the elementary school course. Time of beginning, September, 1921. 

"(c) Pupils under fifteen years of age who have completed the 
elementary school course, together with all of (a) and (b). Time of 
beginning, September, 1922. 

"(d) Pupils under sixteen years of age who have completed the 
elementary school course, together with all under (a), (b) and (c). 
Time of beginning, September, 1923. 

"(e) Pupils under eighteen years of age who have completed the 
elementary school course, together with all under (a), (b), (c) and 
(d). Time of beginning, September, 1924. 

IV — Coiirses of Study Prescribed by Lazv 

Under the law the courses of study in such schools shall be approved 
by the State Commissioner of Education. Such courses are to include 
among other subjects instruction in American history, the rights and obliga- 
tions of citizenship, industrial history, economics, the essential features of 
the laws relating to the industries taught, and shall also include such other 
subjects as will enlarge the vocational intelligence of such minors. 

Two out of the following four courses must be established : 1, industrial 
course ; 2, commercial ; 3, homemaking ; 4, agricultural. Pupils must devote 
one-half of the required time of attendance to the subjects required by 
law, and the other half may be devoted to elective subjects in the courses 
enumerated. 

V — Required Attendance of Minors 

Section 601, paragraph e, of the State Education Law, reads as follows : 
"Each minor under the age of eighteen years, who is not in 
regular attendance upon a public, private or parochial school, or 
who is regularly and lawfully employed in some occupation or ser- 
vice, unless such minor has completed a four-year secondary course 
of instruction approved by the Regents of the University, shall 



48 

attend a part-time or continuation school or class in the city or district 
in which such minor resides or may be employed. Such attendance 
shall be for not less than four hours per week and not more than 
eight hours per week for each week which such school or class is in 
session except that the school authorities may, subject to the approval 
of the Commissioner of Education, permit any such minor to increase 
the number of hours per week of required attendance and decrease 
the number of weeks of required attendance. Such minor who is tem- 
porarily out of regular employment or service shall attend such school 
not less than twenty hours per week. The attendance upon a part- 
time or continuation school or class shall be between the hours of 
eight o'clock forenoon and five o'clock afternoon." 

Section 601, paragraph h: 

"The parent, guardian or other person having the custody or 
control of a minor who is required under the provisions of this article 
to attend a part-time or continuation school or class shall cause such 
minor to attend such school or class. A parent, guardian or other 
person who refuses or fails to comply with this provision of the law 
shall be deemed guilty of a misdemeanor and upon conviction shall 
be subject to a fine of not more than one hundred dollars or by im- 
prisonment for not more than ten days, or both such fine and 
imprisonment, at the discretion of the court. Any minor under six- 
teeen years of age who fails to attend upon instruction as defined by 
this article shall be subject to the provisions of section 635 of the Edu- 
cation Law, and a minor over sixteen years of age who fails to attend 
upon instruction as required by this act may be punished for any 
such violation by a fine not exceeding ten dollars, or by imprisonment 
for not more than ten days, or by both such fine and imprisonment." 

Section 601, paragraph i: 

"Any person, firm or corporation employing a minor between the 
ages of fourteen and eighteen years shall permit the attendance of 
such minor upon a part-time school or class whenever such part-time 
school or class shall have been established in the city or district where 
the minor resides or may be employed, and upon the termination of 
employment of any such minor the employer shall return within three 
days the employment certificate of such minor by mail to the school 
authorities, and a person, firm or corporation employing a minor over 
fourteen years of age and less than eighteen years of age contrary to 
the provisions of this article shall be subject to a fine of not less than 
twenty-five dollars and not more than one hundred dollars for each 
offense, or by imprisonment in the city or county jail for not less 
than five days and not more than ten days, or by such fine and im- 
prisonment, at the discretion of the court. A person, firm or cor- 
poration, which has in its employ a minor who fails to attend a part- 
time or continuation school or class as required herein, shall imme- 
diately discontinue the services of such minor upon receiving from 
the school authorities written notice of the failure of such minor to 
attend such part-time or continuation school or class, and a person, 
firm or corporation violating this provision of law shall be subject to 
a fine of fifty dollars for each offense." 



49 

Section 601, paragraph j : 

"The board of education of each city or district having a popula- 
tion of five thousand or "more inhabitants is hereby required to enforce 
the provisions of this law, and the Commissioner of Education is 
hereby charged with the duty and vested with necessary authority 
to supervise the enforcement and administration of this act." 

Aims and Purposes of Continuation Schools 

New York State since 1913 has had upon its statute books a continua- 
tion school law which authorized boards of education to establish con- 
tinuation classes for workers and which made it compulsory upon the part 
of employed minors to attend such schools when established. Since 
February, 1917, the Board of Education has conducted a number of such 
classes. The law now in force makes it not merely permissive but mandatory 
for the Board of Education to establish such classes. 

The necessity for taking care of the large group of minors who had 
discontinued attendance upon full time schools and who had entered upon 
employment has for some years been apparent to many. So much so that 
continuation schools were organized in a number of states (Wisconsin in 
1911, Pennsylvania in 1915), which gradually increased until now nine- 
teen of our states have continuation schools in operation. This necessity 
was forcibly emphasized by the lessons of the World War which brought 
home to us the urgent need of reconstructing our educational program and 
of making much greater efforts toward widening the scope of educational 
opportunities for all groups of our citizenship. 

Reliance upon evening school attendance by employed minors was un- 
successful. Compulsory attendance at evening schools by such groups was 
difficult to enforce. Voluntary attendance was negligible. In New York 
City alone it is estimated that there are over 200,000 working children 
under the age of eighteen who had not completed a high school course, of 
whom very few attend the evening elementary or high schools. These 
young workers with inadequate schooling are not equipped to meet the 
problems and demands of modem city life. They drift from job to job 
in work of a blind alley character, in work that is uncongenial or enervat- 
ing, without any outlook for personal progress or self development. Such 
groups form ready prey for demagogues and preachers of discontent. The 
conservation of such of our youth is the primary purpose and aim of the 
continuation schools. 

Commissioner Finley has very aptly formulated the purposes of the 
compulsory continuation school law in a recent statement. He states : 

"It was with a clear recognition of the need and right of work- 
ing children for adequate educational opportunities which would better 
fit them for their duties as citizens, that the Legislature of 1919 
passed and Governor Alfred E. Smith signed the part-time school 
law, which it seems to me might well be called the 'Children's 
Charter,' because of the guarantee which it makes on the part of the 
State to all children who live in this Commonwealth. I regard boys 
and girls who early in life enter upon vocational pursuits as pecu- 
liarly of concern to the State, and I hold as a solemn obligation this 



50 

great opportunity which has come to us to conserve their interests, 
for certainly as never before, may it be truly said that our national 
future depends upon the ideals of our youth, upon their faith in 
democracy and their fitness for it. These many thousands of 14, 15, 
16 and 17-year old children who every year leave the schools con- 
stitute such a large portion of our citizenship that they become with- 
out doubt the very foundation of society. 

"I regard the purpose of these schools as being of a twofold 
nature : for the preparation of youth for participation as citizens in 
the political life of the State, and for the guidance toward and the 
training of youth for useful occupations. These two aspects are com- 
plementary each to the other. Teaching in the part-time school will 
include the history and theory of our government and social organiza- 
tion and such vocational instruction as will best aid each child to 
reahze a life of fullest usefulness. Our education for citizenship 
has not always been so definitely organized in its vocational 
phases as we might well wish it to be. Preparation for industrial 
occupations, commercial occupations, agricultural occupations and 
homemaking should be included in the opportunity offered in a plan 
of free education under public supervision and control, each com- 
munity determining the scope of that vocational opportunity in rela- 
tion to its special needs. 

"Finally, I would say, that the part-time school is truly demo- 
cratic only because it is compulsory ; in other words, being compulsory 
it will truly be for all children rather than a favored few who might- 
secure its advantages were attendance to depend upon desire and 
ability to elect it." 

Specific Aims 

1. Vocational Guidance. — To provide vocational experience to assist 
in the choice of an occupation, and when that choice has been wisely made 
to increase the worker's proficiency in it to the end that he will advance 
more rapidly toward the goal he has set for himself. The monotony of 
modern industry, the high speed of production, the lack of interest in an 
intelligent development of the worker leave the boy or girl the victim of 
chance and circumstance. By placing the boy or girl actually at work in 
a machine shop, printing shop, cooking room or office the continuation school 
provides first-hand opportunity for observation and intelligent guidance. 
It becomes possible to analyze special capabilities, to allow for inherent 
failings, and with these as a basis to map out a vocational career. 

2. Co-ordination with Industry. — To supplement this phase of voca- 
tional guidance by co-operation with the industry through visits to em- 
ployers and to follow up the careers of all pupils as far as possible. 

3. Placement. — To find suitable jobs for pupils and in accord with the 
vocational program advised. This is incidental to the foregoing. 

4. Social Stability. — To allay the social unrest through the only per- 
manent means, the substitution of a rational intelligent desire for advance- 
ment in place of blind and sullen resentment. When the restless, poorly 
paid, unskilled worker is given opportunity to develop himself this desire 
will lead to better workers rather than to slacking and sabotage. When 



51 

such aid comes from a community the worker will have more respect for that 
community and its government. The continuation school is another step 
toward a full realization of the American doctrine of an equal opportunity 
for all. 

5. Health. — To conserve and improve the health of the worker. Sys- 
tematic development of hygienic habits with the emphasis upon their in- 
dustrial value will be coupled by inspection by doctors and nurses. 

6. Socialisation. — To create a more healthful social life for the worker 
through cooperation with social agencies. 

7. Practical English and Arithmetic . 

8. .Civic Responsibility. — To create the good citizen through the teach- 
ing of elementary history, economics and civics, with a persistent reference 
to current events and with attention to habitually good civic conduct. 

Budget Items 

To carry out the provisions of the law will entail expenditures of sev- 
eral kinds: (1) for teachers, (2) for supplies and equipment, (3) for rental 
of school accommodations with the accompanying cost of building altera- 
tions and the purchase of classroom furniture, etc., (4) for janitorial service 
and operation of plant, (5) for attendance officers for enforcement of the 
law. For the above items the sum of $2,182,398.32 is requested. 

Present and Proposed Organisation. — The following table shows the 
schools now organized and the schools to be organized this fall and during 
1921: 



Table XII — Present and Proposed Continuation Schools 
{Designation of School Indicated) 



Borough. 


Now in 
Operation. 


To be 

Organized — 

Fall 1920. 


To be 
Organized — 
Feb., 1921. 


To be 
Organized — 
Sept., 1921. 


Total. 


Manhattan . . . 


East Side 
West Side 




Commercial 


Harlem Boys 
Harlem Girls 


5 


Bronx 




Bronx Boys 


Bronx Girls 




2 


Brooklyn 


Brooklyn Boys 


East New York 
Bay Ridge 
Greenpoint 


Williamsburg 
Brooklyn — 
Girls 


Commercial 


7 


Queens 


Queens 








1 


Richmond. . . . 


Staten Island 








1 


Totals 


5 


4 


4 


3 


16 



52 



Table XIII — Present and Anticipated Register in Continuation Schools 



School. 


June, 
1920. 


Dec, 
1920. 


Feb., 
1921. 


Sept., 
1921. 


Date of 
Opening. 


Manhattan — 
1. East Side 


2,040 
1,368 


4,040 
2,568 


8,000 
4,700 
2,400 


9,800 
6,000 
4,800 
1,700 
1,700 


Feb., 1917 


2. West Side 

3. Commercial 

4. Harlem — Boys 

5. Harlem — Girls 


Feb., 1920 
Feb., 1921 
Sept., 1921 
Sept., 1921 


Bronx — 

6. Bronx — Boys 

7. Bronx — Girls 




2,500 


5,200 
2,300 


7,200 
4,600 


Sept., 1920 
Feb., 1921 


Brooklyn — 

8. Brooklyn — Boys . . . . ^ . . . 

9. East New York 


1,725 


2,889 
1,600 
1,600 
1,000 


3,800 
3,100 
3,100 
2,700 
2,200 
2,200 


5,300 
5,100 
4,100 
5,200 
4,400 
4,400 
1,700 


May, 1919 
Sept., 1920 


10. Greenpoint 

11. Bay Ridge 

12. Brooklyn— Girls 

13. Williamsburg 


Sept., 1920 
Sept., 1920 
Feb., 1921 
Feb., 1921 


14. Commercial 


Sept., 1921 


'Queens — 

15. Queens with annexes .... 




1,600 


2,600 


3,600 


Sept., 1920 


Richmond — 

16. Staten Island with an- 
nexes 


268 


468 


700 


900 


April, 1920 






Total 


5,401 


18,265 


43,000 


70,500 





Table XIV — Estimate of Teachers Needed for Fall of 1920 and During 

1921 



Position. 


Perma- 
nently 
employed 
Mar. 31, 
1920. 


Vacancies 

Mar. 31, 

1920. 


Required 
for Fall 
of 1920. 


Required 

for Feb., 

1921. 


Required 

for Sept., 

1921. 


Totals. 






i 

7 
2 

14 
3 


"6 
10 

4 
3 

45 
52 


'4 

25 

7 

5 

88 

100 


'3 

• 27 

8 

6 

96 

110 




Teachers in Charge . 
Clerks 






14 
69 


Teachers (H. S.) . . . 
Teachers (Voc.) .... 

Teachers (El.) 

Teachers (El.) 


21 

14 

243 

265 




32 


27 


120 


229 


250 


658 




Estimate 
Schedule 2 
$97,581 13 


Estimate 
Schedule 8 
$56,450 00 


Estimate 
Schedule 8 
$253,155 00 


Estimate 
Schedule 8 
$423,797 89 


Estimate 
Schedule 8 
$153,453 04 





In considering the request for additional teachers for the fall of 1920 
and for the year 1921, it is to be borne in mind that such teachers are not 



53 

only for the new schools that will be organized but also for the increased 
register in schools now in operation that is anticipated as the plan of en- 
■forcernent of the law is executed. 

The schools as organized at present are opened from 8 to 5 for two 
sessions daily, morning and afternoon for five days a week. A class attends 
one session of four hours on one day a week either morning or afternoon. 
The teacher teaches during one session per day (4 hours) and devotes two 
hours to other phases of work. Prior to this term the classes averaged 
20 pupils so that one teacher cared for 100 pupils. The above estimate of 
teachers needed for 1921 is based upon the rate of 25 pupils to a group or 
125 to a teacher. 

Supervision. The initiation of a new system of schools brings with it 
many problems of which one of the most important is that related to teach- 
ing. The work of instructing the adolescent boys or girls who comprise 
the group that come under the provisions of the new law, particularly in the 
vocational, homemaking and commercial subjects, will require the closest 
supervision and guidance if it is to be efifectively done. In order to pro- 
vide such technical supervision provision is made for the services of three 
supervisors in commercial, home economics and industrial subjects, involv- 
ing the amount of $12,000. 

State Aid. The compulsory continuation school law provides that state 
aid be apportioned by the State Commissioner to the extent of one-half of the 
salary paid to a teacher in such schools, not to exceed one thousand dollars, 
provided the organization and administration, including the course of study 
and supervision of such schools, is approved. 

School Building Accommodations. The compulsory continuation 
school law imposes heavy financial and administrative problems upon the 
Board of Education. Not the least of these is that involved in providing 
suitable school accommodations for the thousands of children who come 
within the provisions of the law. Particularly is this so at this moment 
when we are concerned with the serious problem of mitigating the condi- 
tions of congestion now obtaining in our regular schools. 

The only recourse open to us to provide accommodations for continua- 
tion schools is to rent space in suitable buildings. For such purpose it is 
estimated by the Director of Continuation Schools that 179,000 square feet 
will be required for which an item for $135,000 has been inserted in the 
budget estimate. For necessary alterations to convert such rented space 
it is estimated that $112,000 will be needed and for classroom equipment 
an item for $65,194.80 has been included. 

Attendance Officers. The law provides that the Board of Education 
shall enforce the provisions requiring the attendance of those minors in- 
volved. For such purpose attendance officers will be necessary, and budget- 
ary provision for 42 attendance officers and 2 district supervising attendance 
officers to be appointed during 1920 was included in this year's budget. 

For 1921. with the proposed extension of the group of young workers to 
be brought under the law, it will be necessary to appoint 60 additional offi- 
cers with seven district supervising officers. For such additional positions 
$84,247 will be needed, making a total of $154,875. The enforcement of 
the continuation school law involves not only minor but parent and employer 
and will entail, particularly during the first few years, considerable work 



54 



upon the Attendance Bureau. It is proposed to place the granting of work 
certificates to minors directly in the hands of the Attendance Bureau. If 
this proposal is consummated by legislation it will tend to lighten materially 
the burden of enforcing the continuation school law and to make more 
feasible the task of bringing the working minors back to the schools. 

Voluntary Continuation Classes 
Budget Items 





1921 
Estimate 


1920 
Apportion- 
ment 


Increase 


Estimate 
Schedule 
Number 


General School Fund — 
Teachers' Salaries — 

Industrial 


$23,312 00 
18,240 00 
57,500 00 






No. 8-p. 23 


General Improvement. ..... 

Americanization Classes ... 


No. 8-p. 23 
No. 8-p. 23 


Total 


$99,052 00 


$58,638 86 


$40,413 14 




Special School Fund — 
Supplies, etc. — 

Industrial 

General Improvement 

Americanization Classes. . . . 


$1,099 50 

750 00 

1,750 00 


* 
* 
* 




No. 19-p. 38 
No. 19-p. 38 
No. 19-p. 38 


Total 


$3,599 50 












Contingencie s^- 

General Improvement 

Americanization Classes. . . . 


$1,000 00 
250 00 


* 
* 




No. 11-p. 34 
No. 11-p. 34 


Total 


$1,250 00 









*Included in lump sum appropriation for all continuation schools 

Voluntary continuation classes are classes at which, as the name implies, 
attendance is voluntary and which for the most part serve the adult group. 
Such classes are organized and conducted in neighborhood houses, settle- 
ments, in department stores and in factories in co-operation with industrial 
establishments and social agencies. They are of three types: 1. Industrial; 
2, General Improvement, and 3, Americanization. 

1. The Industrial Classes offer instruction in subjects closely related 
to the trade or occupation in which the pupils are engaged. For such classes 
$23,312 is requested which maintains at the higher rates of compensation 
now in efTect the present organization. 

2. General Improvement Classes offer instruction in common branches. 
The request submitted is to provide for the continuance of the activity on 
its present basis without any extension but at the higher rates of compensa- 
tion now effective. 

3. Americanization Classes. Instruction in these classes is offered in 
English to foreigners and in citizenship. For this item the amount re- 
quested for teachers' salaries is $57,500. Of this amount $19,500 is re- 



55 

quired for the proposed extension of the activity and $12,000 is for salaries 
of five organizers of classes. 

The proposed extension of the Americanization Classes is part of the 
program adopted by the Board of Education in its Americanization work. 
Both Federal and State governmental agencies are exerting every effort to 
reach the illiterate non-English speaking groups, particularly the foreign 
born mother who, on account of her home duties, cannot avail herself of the 
educational opportunities afforded by evening schools. The present classes 
have done noteworthy work and the extension of the activity is highly de- 
sirable. Aid is apportioned by the State for the payment of teachers' sal- 
aries. 



56 

X (a)— EVENING ELEMENTARY SCHOOLS 
Budget Items 





1921 
Estimate 


1920 
Apportion- 
ment 


Increase 


Estimate 
Schedule 
Number 


I. General School Fund — 
Salaries of Teachers, et al. — 

1. Regular Sessions 

2. Evening Sessions of Pro- 

bationary School 

3. Summer Sessions 


$481,145 60 

5,044 00 
12,818 00 


$335,190 00 

3,880 00 
9,420 00 


$145,955 60 

1,164 00 
3,398 00 


No. 11-p. 25 

No. U-p. 25 
No. 11-p. 25 


• 


$499,007 60 


$348,490 00 


$150,517 60 




II Special School Fund — 

1. Supplies and Equipment . 

2. Janitorial Service 


$24,089 64 
60,977 00 


*$21,415 88 
*33,427 50 


$2,673 76 
27,549 50 


No. 15-p. 36 
No. 31-p. 43 




$85,066 64 


$54,843 38 


$30,223 26 





*Included in lump sum appropriations, 
each item respectively. 



The amounts given above are the amounts requested for 



During the past school year there were conducted 70 evening elementary 
schools : 34 for 75 nights, 20 for 99 nights, and 16 for 114 nights. 

The chief activities of the evening elementary schools comprise 

(a) Instruction in common branches; 

(b) instruction in English to foreigners; 

(c) instruction in special subjects such as homemaking, sewing, 
cooking, etc. 

The most important work undertaken is in the classes for English to 
foreigners. In this the evening elementary schools serve probably as one 
of our chief Americanizing agencies for such group. There ought to be 
little need for argument to convince one of the absolute necessity for sup- 
porting the work now carried on or for extending it so far as our financial 
ability may permit. 

The war made us forcibly cognizant of the potential danger that exists 
in an unassimilated foreign population such as is found in our large cities. 
The conditions that were revealed in the draft and in the army camps 
startled many who were unaware of the great number of aliens in our midst 
who after years of residence not only knew little or nothing of America 
and its institutions but were unable even to speak a word of its language. 

It was assumed before the war that the evening schools in our large 
cities were reaching a goodly proportion of the newly arrived aliens. The 
draft showed us the error of this assumption. It showed us tens of thou- 
sands in this city alone whom the schools had never touched. The magni- 
tude of the problem and its difficulties indicate the insufficiency of our past 
efforts and point out the need for still greater efforts on our part so that the 
schools may do their share in the development of Americanization in our 
immigrant population. 



57 

The Federal and the State governments are making determined efforts 
to reach the ilHterates and also the non-English speaking group in our cities. 
Chapter 415 of the Laws of 1918 prescribes that 

"Every minor between sixteen and twenty-one years of age who 
does not possess such ability to speak, read and write the English 
language as is required for the completion of the fifth grade of the 
public or private schools of the city or school district in which he 
resides shall attend some day or evening school or some school main- 
tained by an employer — throughout the entire time ^uch school is in 
session" — unless deemed to be physically or mentally unfit by the 
Commissioner of Health or by some designated official. 

Penalties are prescribed for non-attendance upon the part of any minor 
and for any one who employs such minor who fails to attend. Through the 
enforcement of such law, which is included in the program outlined by the 
State authorities, it is believed by the Evening School Department that the 
increased attendance resulting will make necessary the extension in number 
of sessions recommended. 

The request for 1921 calls for $481,145.60, which is an increase of 
$145,955.60, or 43.5 per cent, of the amount apportioned for 1920. The 
increase is made up largely by the increased salary rates which are now 
effective and which are 30 per cent, higher than prior rates. 

General School Fund Schedule No. 11, page 25, shows by subjects the 
proposed number of sessions. Most of the increase or extension of service is 
in the subjects of common branches, English to foreigners and community 
workers. 

The net extension of service calls for $45,398.60, or an increase of 
13.5 per cent, over the apportionment for 1920. 

Community Work — ^Among the items for evening elementary schools 
is that of community worker. A community worker has charge of the com- 
munity night in the evening schools held on Thursday night, and also of 
any social activities conducted during the week. 

In estabhshing such Thursday night activities New York City has been 
a pioneer. As already pointed out, the comparative failure of the evening 
schools to reach more of our alien population than they did was largely due 
to the fact that the system operated on the assumption that the foreigners 
would come to school just because the school was open and free and was 
offering what they needed to become American citizens. But the foreigner 
knew that he could get along without English, because he did so. He lived 
among his own people, read papers in his own language, listened to speeches 
in his vernacular and made money. His children could speak and write all 
the English he needed when he had to to have intercourse with American 
business people. So he stayed away from evening school. Two hours' work 
on the top of a long day's hard work was unattractive. 

We had assumed that academic work in the formal atmosphere of a 
classroom was sufficiently inviting to draw our people. We had lost sight 
entirely of the fact that education is preparation for social contact between 
people. These aliens longed for that something which the school lacked. 

The community night is an attempt to inject into the school life that 
factor or element that had hitherto been neglected. If people of similar 
inclinations could be grouped into clubs on one night a week they would 
find a motive for coming to evening school and being "Americanized" with- 



58 

out being incessantly "taught." The clubs, the lectures and discussions, the 
dances, and physical training draw these people out of themselves into social 
groups, which, under proper supervision, must tend to become American in 
ideals and in spirit. 

The community night helps in teaching the English language. Valuable 
as the formal classroom work may be, the use of EngHsh during the social- 
ized evening is an indispensable aid. The community night supplies the 
strong motive inherent in social and recreation instincts and induces the 
foreigner to attend as he would his club or other places of social gathering. 
It also offers a means for eliminating uncouth ways and un-American 
customs which are rubbed off through contact with people of other races and 
characteristics. The community worker is the person on whom the organiza- 
tion of such work devolves. He is to enlist the aid of all neighborhood organ- 
izations or agencies working with the foreign born. He must understand the 
people he is working with and he must have the time to establish the 
contact with the neighborhood and its organizations. 

The following tables show statistics for previous years as to expendi- 
tures and as to attendance: 

Expenditures for Previous Years 



Year 



Amounts For 



Salaries 



Supplies 



1913 
1914 
1915 
1916 
1917 
1918 
1919 
1920 



$403,028 65 
478,524 11 
438,105 29 
264,078 36 
268,216 05 
274,503 68 
256,393 46 
335,190 00* 



,851 03 

23,800 82 

23,488 27 

10,419 18 

12,491 26 



*Apportioned. 

Table XV — Attendance by Months in Evening Elementary Schools, 1911- 

1912 to 1919-1920 



Year 



Sept. 



Oct. 



Nov. 



Dec. 



Jan. 



Feb. 



March 



April 



May 



June 



1911- 
1912- 
1913- 
1914- 
1915- 
1916- 
1917- 
1918- 
1919- 



1912. 
1913. 
1914. 
1915. 
1916. 
1917, 
1918. 
1919. 
1920. 



11,284 
10,380 



40,015 
37,541 
46,069 
37,842 
20,936 
18,742 
14,729 
15,665 



37,273 
39,833 
46,711 
52,576 
38,077 
26,422 
21,637 
14,266 
17,888 



35,457 
36,557 
42,699 
47,811 
34,656 
26,777 
21,664 
15,306 
17,277 



33,875 
34,518 
39,242 
43,567 
28,920 
23,083 
16,245 
14,367 
15,938 



28,364 
30,766 
35,723 
40,875 
25,403 
21,036 
15,463 
14,162 
14,569 



23,594 
26,400 
29,695 
33,281 
21,925 
19,208 
14,585 
13,789 
14,040 



25,022 
29,198 



4,502 
8,978 



2,846 
8,505 



2,071 
4,963 



59 

X (b)— EVENING HIGH SCHOOLS 
Budget Items 





1921 
Estimate 


Apportion- 
ment 
1920 


Increase 


Estimate 
Schedule 
Number 


I. General School Fund — 

1. Salaries 


$797,511 00 


$514,573 74 


$282,937 26 


No. 10-p. 25 


II. Special School Fund — 

1. Supplies and Equipment. 

2. Janitorial Service 


$20,296 59 
34,000 00 


$18,632 14* 
17,066 00* 


$1,664 45 
16,934 00 




Total 


$54,296 59 


$35,698 14 


$18,598 45 





♦Included in lump sum appropriations. Amounts indicated above are amounts requested. 

The evening high schools offer instruction in all regular secondary sub- 
jects to pupils who are elementary school graduates or who have received 
an equivalent education. The courses offered in academic, commercial and 
industrial subjects parallel the courses offered in the regular day high 
schools. 

During the past year sixteen evening high schools were conducted, 
seven in Manhattan, two in The Bronx, six in Brooklyn, and one in Rich- 
mond. The following table shows by months the average nightly attend- 
ance for the period 1914 to 1920: 



Table XVI — Average Nightly Attendance — Evening High Schools 



Month 

September. . . . 

October 

November. . . . 
December . . . , 

January 

February 

March 

April 

May 

June 



1913-14 



16,705 
15,112 
14,958 
13,367 
11,849 

14,123 
12,116 
11,824 



1914-15 



22,498 
22,586 
18,486 
27,212 
18,395 
18,605 
16,375 
7,985 



1915-16 



21,398 
24,202 
19,975 
17,279 
14,795 
17,462 
14,642 
13,680 
13,590 



1916-17 



12,276 
17,071 
15,503 
13,888 
12,864 
14,573 
13,545 
12,081 
11,576 
1,173 



1917-18 



13,184 
16,400 
15,393 
13,542 
10,899 
13,770 
13,324 
11,382 
10,511 
5,779 



1918-19 



14,051 
14,605 
12,664 
12,638 
11,765 
16,069 
14,009 
12,877 
11,832 
6,928 



1919-20 



17,315 
18,482 
16,598 
15,136 
13,165 
14,934 
14,646 
13,244 
12,036 
7,700 



The request for 1921 calls for an appropriation of $797,511, which 
involves an increase of $282,937.26 over the amount allowed for 1920. Of 
this increase, $154,373.12 represents the increased cost of the present organ- 
ization at the higher rates of compensation now in effect. 

For extension of service $128,565.14 is requested which represents an 
expansion of less than 20 per cent. The increase is due in part to the in- 
crease in number of sessions proposed for 1921 for various subjects to take 



60 

care of the increased registration anticipated by the Evening School De- 
partment. It is also in part accounted for by the extension of the school 
season in some courses in some of the schools from 120 nights to 190 nights. 
Most of the schools will now operate in part, at least, on the 190-night 
basis. Together with this extension in length of season thirteen of the 
schools have operated under a four period per night plan. Through such 
modification of the organization the evening high school courses have been 
granted recognition by the Regents as the equivalent of day high school 
courses and now lead to admission to colleges or to professional schools or 
to eligibility for Regents' certificates. 

Expenditures in Previous Years 
Year Teachers' Salaries 

1913 $352,489.04 

1914 444,335.48 

1915 471,648.93 

1916 420,326.14 

1917 438,033.67 

1918 453,753.81 

1919 476,135.33 

1920 514,573.74* 



* Apportionment. 



61 



X. (c) EVENING TRADE SCHOOLS 
Budget Items 





1921 
Estimate 


1920 
Appor- 
tioned 


Increase 


Estimate 
Schedule 
Number 


I — General School Fund — 

1. Salaries 


$235,020 50 


$125,000 00 


$110,020 50 


No. 9-p. 24 


II — Special School Fund — 

1. Supplies and Equipment. . . 

2. Janitorial Service 


$16,876 81 
13,640 00 


*$15,172 01 
*5,924 76 


$1,704 80 
7,715 24 


No. 15-p. 36 
No. 31-p. 43 




Total Special School Fund. . . . 


$30,516 81 


$21,096 77 


$9,420 04 





*Included in lump sum appropriations, 
these items respectively. 



The amounts given above are the amounts requested for 



During the past year nine evening trade schools were conducted, six 
in Manhattan, one in Brooklyn, one in Queens and one in Richmond. In 
addition classes in trade subjects were conducted in some of the evening 
elementary and evening high schools where the school possesses shop equip- 
ment and facilities to make this possible. 

In the evening trade schools instruction is given in the trades or in 
industrial or homemaking subjects to pupils over sixteen years of age who 
are regularly employed during some part of the day. Such instruction is in 
subjects related to the practical work carried on in such employment. The 
courses in homemaking subjects are open to all women over sixteen years 
of age. 

The schools are conducted 120 nights, divided into two parts. On 
Monday and Wednesday evenings of each week one group of pupils attends 
and on Tuesdays and Thursdays another group of pupils is in attendance. 
Two schools are thus actually conducted. Prior to 1916 the instruction was 
offered for four nights per week to the same group. The present arrange- 
ment, effected because of financial reasons, makes it possible to serve alarger 
group of different students. 

The work is of a practical character and the instruction is given by 
teachers who have been largely recruited directly from the various trades. 

The purpose of the instruction is to afford a training which will sup- 
plement the daily experience of the pupil, which bears more or less directly 
upon his work and which will help to make him a more capable workman. 
Experience seems to show that the evening classes can reach and help a 
larger number of individuals than any other form of vocational. education. 
After the individual leaves day school and becomes a wage-earner he ap- 
preciates more fully that promotion and success in any given calling come 
only to those who are best fitted to compete with others. The evening trade 
courses offer an opportunity for increasing one's efficiency, knowledge and 
skill. 

The demand for evening trade instruction in this city has never been 
fully met. The following table shows the average nightly attendance by 
months for the past seven years. 



62 



Table XVU.— Average Nightly Attendance, 1913-1920 



Year. 


Sept. 


Oct. 


Nov. 


Dec. 


Jan. 


Feb. 


Mar. 


Apr. 


May 


1913-14.... 


3,540 


3,333 


3,258 


2,899 


2,809 


2,975 


3,025 


2,763 


2,662 


1914-15.... 




4,447 


4,358 


3,736 


5,341 


3,766 


3,812 


3,446 


3,301 


1915-16. .. . 


4,051 


4,374 


3,988 


3,595 


3,971 


3,903 


3,550 


3,573 


3,118 


191^17. . .. 


3,531 


4,163 


4,128 


3,994 


3,031 


3,183 


3,640 


3,190 


3,088 


1917-18.... 


3,634 


4,501 


4,327 


4,135 


3,395 


3,813 


4,186 


3,362 


2,744 


1918-19. ... 


3,313 


3,964 


3,467 


3,847 


4,179 


4,114 


3,763 


3,358 


3,136 


1919-20.. .. 


5,646 


5,755 


5,793 


5,840 


4,992 


4,912 


4,969 


4,371 


4,172 



The evening trade schools, as the above table shows, had a larger at- 
tendance than in any previous year, winding up the season with an average 
nightly attendance of over one thousand more than in the preceding year. 
The Evening School Department anticipates a still further increase in 
registration. 

The request for 1921 calls for an appropriation of $235,020.50, as 
allowed by the Board of Education after a reduction from $303,595, the 
amount requested by the Director. 

The amount included in the estimate will allow of little expansion and 
will permit the activity to be maintained during 1921 at the higher rates 
of compensation according to the program which it was intended to carry 
through for 1920, but which had to be modified this year because of in- 
sufficient funds. 

State Aid. — The State has appreciated its responsibility of assisting in 
the training of persons engaged in useful employment in industries and has, 
by legislation, made provision for such assistance. State aid is given under 
section 605, chapter 531 of the Education Law, to the extent of one-half 
of the salary of each teacher in an approved course but not exceeding one 
thousand dollars on account of any one teacher. Accordingly, of the amount 
requested in the budget estimate for 1921, approximately* one-half will be 
returned by the State. 



Expenditures for Evening Trade Schools in Previous Years 
Year Salaries of Teachers 

1913 $85,881 .00 

1914 121,449.70 

1915 131,674.23 

1916 94,101 . 16 

1917 106.035.52 

1918 120,293.93 

1919 121,171.75 

1920 125,000.00 

* No State aid for clerical assistants, registrars, etc. 



63 



X. (d) SUPERVISORS OF SPECIAL SUBJECTS IN EVENING 

SCHOOLS 

Budget Items 



General School Fund 


Estimate 
1921 


Appor- 
tioned 
1920 


Increase 


Estimate 
Schedule 
Number 


For Cost of Salaries 


$8,016 


$5,760 


$2,256 


No. 12-p. 25 





Specialized supervision is a necessity for good work in the evening 
schools as well as in the day schools, particularly in special subjects and in 
English to foreigners. 

Some of the teacher group recruited largely from our day school 
teachers are not accustomed to teaching adults, which involves peculiar 
elements in the teaching situation not always present in day schools. Some 
of the trade subject teachers are not teachers in the daytime, and while 
trained and skilled in their particular trades do not possess the teaching 
technique required. This necessitates specialized supervision. The State 
Department requires such specialized supervision before approving courses 
for purposes of apportionment of state moneys. 

Expenditures for this item for past years have been as follows : 

1916 $2,691 .00 

1917 4,188.00 

1918 4,062.00 

1919 

1920 *5,760.00 

*Apportioned. 

The amount requested includes provision for one new position, that 
of Supervisor of Trade Equipment. 



64 



XI— VACATION SCHOOLS 
Budget Items 





1921 
Estimate 


1920 
Apport 


Increase 


Per 
Cent. 

In- 
crease 


Estimate 
Schedule 
Number 


I — Vacation Schools-Elem. — 
1. General School Fund — 
(a) Salaries of Teachers, 
et al 


$69,200 00 

17,107 60 
5,940 00 


$44,396 50 

*13,429 60 
2,218 92 


24,803 50 

3,678 00 
3,721 08 


55.8 


No. 13-p. 26 


2. Special School Fund — 

(a) Supplies, etc 

(b) Janitorial Service . . 


No. 15-p. 36 
No. 31-p. 43 


Total 

II — Vacation High School — 
1. General School Fund — 
(a) Salaries of Teachers, 
et al 


$92,247 60 

$12,510 00 

1,295 00 
215 00 


$60,045 02 

$10,425 00 
' "65.60 


$32,202 58 

■$2,085 00 

1,295 00 
149 40 


■ 
20% 


No. 13-p. 26 


2. Special School Fund — 

(a) Supplies & Equip. . . 

(b) Janitorial Service . . 


No. 15-p. 36 
No.. 31-p. 43 


Total 

Ill — Centers for Food Educa- 
tion — 

1. General School Fund — 

(a) Salaries 

2. Special School Fund — 
(a) Supplies, etc ....... . 

(b) Janitorial Service . . 


$14,020 00 

$3,900 00 

1,500 00 
2,000 00 


$10,490 60 

$3,000 00 

* 1,000 00 
1,640 00 


$3,529 40 

$900 00 

500 00 
360 00 


30.0 


No. 13-p. 26 

No. 15-p. 36 
No. 31-p. 43 


Total 


$7,400 00 











*Included in lump sum appropriation for General Educational Supplies and Equipment. 

Vacation Schools — Elementary (Opportimity Classes) 

Vacation schools were first organized in New York City in 1898, in 
which year ten schools were conducted. The activities conducted included 
kindergarten work, nature study, drawing, printing, music, toymaking, join- 
ery, wood carving, cane weaving, bent-iron work, cooking, sewing, millinery, 
knitting, crocheting, physical training and play. That is, the emphasis was 
largely placed on handwork rather than bookwork. For a number of years 
past the vacation schools have been limited because of lack of funds to 
the conduct of "opportunity classes." 

What is an Opportunity Class? 

An opportunity class is a class intended primarily for work with chil- 
dren. 

(a) Who have failed of promotion the preceding June. 

(b) Who are overage although bright. 



65 

(c) Who need credit for attendance in order to comply with 
the provisions of the compulsory education law to obtain employment 
certificates. 

(d) Who, because of foreigii birth, need special help in English. 
The value of such classes may be briefly summed up as follows : 

1. Reduction in cost of educating certain groups of children 

Over 80 per cent, of the group attending opportunity 
classes are children who have spent a term in a grade and 
who have for various reasons failed of promotion. After at- 
tendance at an opportunity class and after successful exami- 
nation such children are given a certificate which entitles them 
to a "trial" promotion in their own schools the following 
September. 

Careful follow-up studies made for a number of years 
show that of those children receiving a certificate the great 
majority not only successfully maintain themselves in the 
grades to which they have been promoted on trial but also 
that they subsequently make normal progress. 

The cost of instruction for a term is thus saved in each 
case. The cost of instruction per child in opportunity classes 
is about $3,50. The cost of day school instruction for one term 
is about $25 per capita. The difference over $20 is thus saved 
on each child granted a certificate who subsequently main- 
tains himself in regular classwork. 

2. Relief of congestion in school 

The opportunity classes through accelerating the progress 
of children through the grades tend to relieve congestion which 
is in part due to non-promotion, particularly in the lower 
grades. 

3. Incentive to continue advancement 

"The children who attend summer school sessions and 
receive certificates are imbued with ambition through a feel- 
ing of accomplishment and success. The depression conse- 
quent on loss of advancement is dispelled. The work of the; 
school is taken up with renewed efifort. Records of the past 
two years indicate that 89 per cent, of the pupils who receive 
certificates in vacation schools are promoted and sustain them- 
selves in the new grade in the fall term. The study of the 
progress of the children also shows that 73 per cent, of those 
advanced on vacation school certificates in September are also 
promoted in February. The escape from the loss of six 
months and the stigma of a holdover evidently stimulates the 
children to hard work." 

4. Increases the educability of children that attend 

"The habit of concentration which is so badly shaken dur- 
ing the vacation period is not only saved but strengthened 
The unpromoted pupil fresh from the vacation school often 



66 

outshines the advanced child when the fall term begins. The 
mental inertia that always follows a period of idleness is over- 
come." 

5. The habit of industry and application 

"The pupil attends vacation school voluntarily. It re- 
quires more than common courage to toil in the classroom 
while others play. The physical discomfort caused by the 
torrid atmosphere of the schoolroom in midsummer must also 
be borne. The requirements for certificates compel a perfect 
attendance. Self-denial of the highest type and the surrender 
of personal feelings to attain a remote goal are found here. 
The very spirit of industry and application is imbued." 

During the current year 46 vacation schools (elementary) were con- 
ducted with the following attendance : 



Table XVIII — Vacation School Statistics for 1920 



Borough 


No. of 
Schools 


No. of 
Classes 


Register 

at End 

of Term 


Aggregate 
Attendance 


Average 

Daily 

Attendance 


Manhattan 

Bronx 

Brooklyn 

Queens 

Richmond 


15 
6 

18 

5 
2 


136 
75 

145 
34 
11 


5,244 
2,973 
5,695 
1,239 
305 


154,172 
86,471 

170,426 

36,852 

6,148 


5,205 
2,893 
5,710 
1,224 
205 


Total 


46 


401 


15,456 


454,069 


15,237 



There were 341 opportunity classes, 18 in Domestic Art, 15 in Domestic 
Science, 18 in Shopwork, 4 in Printing, 3 in Speech Improvement and 2 in 
Bookbinding. The register at the end of the term was 15,456, of which 
13,496 took the final examinations. Of the number taking the final tests 
10,208 were granted certificates. 

The request for 1921 calls for an appropriation of $69,200, which in- 
volves an increase of $24,803.50 over the sum allowed for 1920. Of this 
sum $13,318.50 represents the additional cost of the higher salary rates for 
the present organization and $11,484.55 represents the additional cost in- 
volved in the extension of service requested. The Director of Vacation 
Schools recommended the establishment of seven additional schools but 
this recommendation was not allowed by the budget committee of the Board 
of Education. The extension of service, for which funds are requested, 
provides for additional classes in schools now operated to take care of the 
numbers of pupils who apply for admission but who cannot be accommo- 
dated. 

The following table shows the number of children denied admission 
during the past few years : 



67 



Table XIX — Number of Children Denied Admission to Opportunity 

Classes 



Year 


No. of Classes 
Conducted 


No. Denied 
Admission 


1915 


143 
140 
161 
245 
271 
401 


2,690 


1916 


2,195 


1917. 


2,124 


1918 


1,615 


1919 


1,775 


1920 


1,930 







Expenditures in Previous Years 

Teachers 
et al. 
Year Salaries 

1913 $64,308 51 

1914 72,596 74 

1915 14,775 50 

1916 14,536 25 

1917 20,529 80 

1918 31,868 44 

1919 32.936 38 

1920 *44,396 50 



*Apportionment. 

Classes for Food Education and Economy 

For these classes the amount requested for teachers' salaries provides 
for the present organization at the higher rates of compensation resulting 
from recent legislation. These classes were initiated in 1918 by the Board 
of Education as a pioneer attempt in city community work in food educa- 
tion and food economy. The work includes instruction in food values, 
food preparation, food conservation and in practical food economies. The 
activity has been most successful and meets a real need. 

Vacation High School for Boys and Girls 

During the past season a vacation high school was conducted for the 
first time under the control of the Board of Education. For a number of 
years it had been proposed to conduct such a school for which the demand 
was considerable, as was evidenced by the fact that classes of this kind con- 
ducted under private enterprise, and for which fees were charged, were 
attended by large numbers of pupils. 

The high school was open for 40 sessions and received as students day 
high school students who were desirous of making up lost ground, or gain- 
ing advanced credit. Classes were conducted in Bookkeeping, Community 



68 

Civics, Economics, English, French, History, Latin, Mathematics, Spanish, 
Stenography and Typewriting. 

To students completing the courses successfully certificates were 
granted which will give them advanced standing in the fall term in the 
regular day high schools. Over 1900 students enrolled. 

The amount requested for 1921 calls for $12,510, an increase over the 
amount allowed for 1920 of $2,085, or 20 per cent. This extension was 
allowed by the Board of Education in lieu of the request by the Director 
of Vacation Schools for an additional $10,425 for conducting an additional 
summer high school. 



69 



XII— SUMMER SESSIONS OF INSTITUTIONAL CLASSES 

Classes for Delinquent and Handicapped Children 

Budget Items 



Item 


Estimate 
1921 


1920 
Appor- 
tioned 


Increase 


Per Cent. 

of 
Increase 


Estimate 
Schedule 
Number 


I. General SchoollFund — 

1. Teachers 

II. Special School Fund — 
1. Supplies 


$20,404 80 
4,000 00 


$7,488 00 

* 


$12,916 80 


63.3 


14, p. 26 

15, p. 36 







wmg 



♦Included in gross amount allowed for General Educational Supplies and Equipment, 
requested for 1920 was $2,080. 

The activity carried on in these classes is described in the folio 
statement taken from the Director's report : 

Institutional Classes, Classes for Delinquent and Handicapped Children 

Throughout the school year classes for delinquent, defective, crippled, 
blind, deaf and tuberculous children are conducted as annexes to various 
elementary schools. The closing of the schools for the summer does not 
liberate" the unfortunate children of these groups for play and recreation 
during the vacation period. The delinquent and defective groups are incar- 
cerated and isolated socially from their communities. The physically 
handicapped are confined by their infirmities. If the withdrawal of edu- 
cative influences is added to the social isolation, the problem of unadjust- 
ment in children is greatly aggravated and the progress of the unfortunate 
children toward useful positions in the community is greatly retarded. It 
would be cold-blooded to abandon this large group of urban childhood to 
months of listless imprisonment. 

" In order to preserve the continuity in the training of these children, 
the classes were continued under the vacation school department. The 
services of specialists in teaching each particular type of child were secured 
by continuing the person conducting the class during the school year or 
by a careful selection of qualified substitutes. At the beginning of the 
summer a conference with the teachers was held. A daily program of 
work was arranged for each individual group, after a special diagnosis of 
the physical and mental conditions of the individuals comprising the various 
classes. In arranging the programs provision was made for an increase 
in the periods and forms of recreation in order to conform to the spirit of 
the vacation season. Passive recreation, handwork, story telling, games, 
swings, slides, athletics, manual training, and other play forms were inter- 
spersed through the day's work. 

" Special features were : 

" (a) Bus rides paid for from the driving fund for crippled children. 

" (b) Excursions on municipal ferries and tours to points of historical 
interest. 

"(c) Trips on the sight-seeing yacht Tourist furnished free of cost 
by Captain Roberts. 



70 

" (d) Exhibitions of handcraft work, to which parents and interested 
adults were invited. 

"(e) In rural districts nature study and gardening were taken up. 

" The physical welfare of the children was safeguarded, as during the 
school term by physical inspection, medical attention, nurse attendance, 
hygienic precautions and attention to proper nutrition." 

The increase is accounted for by the fact that more of such institutional 
groups have during the current school year become annexes of day schools 
through action of the Board of Superintendents and the Board of Education 
and by reason of the higher rates of compensation in effect. 



Amounts Expended in Previous Years for Teachers' Salaries 

Year Amount 

1916 $2,307 00 

1917 2.570 50 

1918 2,899 00 

1919 2,713 25 

1920 7,488 00 

(Apportioned) 



71 
XIII— VACATION PLAYGROUNDS 

Budget Items 



Regular Playgrounds 


1921 
Estimate 


1920 
Apportioned 


Increase 


Estimate 
Schedule 
Number 


General School Fund — 

1. Salaries 

Special School Fund — • 

1. Supplies 

2. Janitorial Service 


$144,856 35 

69,969'00 
37,440 00 


$94,353 75 


$50,502 60 


No. 16, p. 27 














All Day Care of Children — 
General School Fund — 

1. Salaries 

Special School Fund — 

1. Supplies 

2. Janitorial Service 


$12,500 00 

1,544 00 
4,800 00 


$7,992 00 


$4,508 00 


No. 16, p. 27 















The vacation playgrounds conducted are of three types based upon 
the age interests of the children involved, the home conditions and the 
structural adaptability of the school buildings used. They are : 

(a) Mothers' and babies' playgrounds. 

(b) Playgrounds for older children. 

(c) Play schools for the all-day care of children. 

(a) Playgrounds for Mothers and Babies 

This type of playground is conducted for children in arms accompanied 
by mothers or older sisters and for youngsters from four to seven years of 
age. The buildings used were those having limited play space with sub- 
divided indoor and outdoor yards, conditions that prohibited the more 
vigorous activities that appeal to the older children. These play centers 
offer the only available means in many congested sections far away from 
parks or open spaces of escape from the heat of the summer. 

(b) Playgrounds for Older Children 

These served children from 7 to 14 years of age and were located in 
schools that had large play areas free of obstruction and adapted to the 
activities conducted. 

(c) Play Schools for the All-Day Care of Children 

The aims of this type of school were to serve as a substitute for the 
home and the school during the vacation period, to conserve their influence 
particularly for those children deprived of parental care and control be- 
cause parents were at work, to take care of children suffering from im- 
proper and irregular nourishment. These schools, in co-operation with 
the Board of Health and other agencies, also cared for children who had 
physical ailments or defects. 

The number of playgrounds of the various types conducted during the 
current year together with the aggregate attendance and average daily 
attendance are shown in the following table : 



72 



Table XX — Attendance at Playgrounds, 1920 



Kind 


Number 


Aggregate 
Attendance 


Average Daily- 
Attendance 


Mothers and Babies .... 

Indoor 

Outdoor 

Kindergarten Centers. . . 
All Day Care 


64 
105 

8 

3 

16 


880,399 

3,679,137 

81,434 

14,070 

115,381 


21,976 
64,747 

2,218 
353 

2,913 


Total 


196 


4,770,421 


92,207 



The request of the department for regular playgrounds involves an in- 
crease of $50,502.60 over the amount apportioned for 1920, or 53.5 per cent. 
The increased rates of compensation that went into effect as of August 1st 
account for 30 per cent, increase. The net extension of service for 1921 
(at higher rates of compensation) involves an increase in cost of $22,196 
and is accounted for by the proposed extension of the activity in present 
organized playgrounds and the opening of ten additional playgrounds, for 
which sixty positions are requested. 

For play schools for the all- day care of children the request involves 
an increase over the 1920 appropriation of $4,508 of which again the major 
part is due to the higher salary schedules. 

In planning the organization of this activity and in determining the 
establishment of new centers the utmost care is exercised. The necessity 
for careful planning in a field of activity such as this, related to recreation 
and engaged in by a number of agencies both municipal and private, has 
been thoroughly appreciated. Hitherto, owing to the lack of a compre- 
hensive recreational program in New York, there has been a lack of co- 
ordination in the efforts of the various agencies aiming to provide play- 
facilities which has led to wasteful duplication and competition. The 
Board of Education, the Department of Parks, the Police Department, the 
Parks and Playground Association, the Borough Presidents, settlements and 
neighborhood associations, et al., all conduct some form of indoor or out- 
door playgrounds or provide other forms of play facilities. As a result in 
previous years play facilities have frequently been concentrated in some 
.•sections of the city while other sections have lacked. Before the location 
of the playgrounds of the Board of Education is determined, a preliminary 
survey of the play needs and play facilities of the city is made. The play- 
grounds of the Board of Education are then distributed in accordance with 
the needs of those districts not otherwise provided for so that there is no 
avoidable duplication or competition. As a result an economical and intelli- 
gent program of work is developed. 



7i 



Expenditures in past years. The following table shows the expendi- 
tures (for salaries) for a number of years back. 





Regular 


All Day Care 




Year 


Sessions 


of Children 


Total 


1913. ." 


$84,745 10 




$84,745 10 


1914 


85,360 42 




85,360 42 


1915 


53,429 55 




53,429 55 


1916 


55,975 12 




55,975 12 


1917 


53,416 93 




53,416 93 


1918 


71,909 93 


$4,682 53 


76,592 46 


1919 


72,781 28 


4,265 75 


77,047 03 


1920 


94,353 75* 


7,992 00 


102,345 75 



*Apportionment. , 

The above table shows that in 1913 the amount expended was about 
$85,000, which was materially reduced in 1915 to 1917. The activity as a 
result did not develop nor expand during those years as it should have to 
meet the pressing demands for play facilities in this large city. At one 
time in past years the playgrounds were open for ten weeks, six days per 
week, but later the season was reduced to eight weeks. In 1915-1917 the 
length of the season was still further reduced to seven weeks with only 
five days a week. 

During the season of 1918 the present officials realized that, while the 
school children were given an opportunity for recreation for seven weeks 
they were turned loose on the streets for three weeks, exposed to the perils, 
both physical and moral, of the city's streets. Honorable John F. Hylan, 
Mayor of the city, issued a proclamation urging increased and continuous 
opportunities for play for children. In that year the playgrounds were open 
until September 1st. During the present city administration the appropria- 
tions allowed for this activity have shown material increases. 

The imperative necessity for providing adequate play space and play 
facilities in this city, with its thickly congested population and its increasingly 
heavy traffic, must be patent to every one. The list of casualties from street 
accidents is appalling. During the calendar year 767 persons lost their lives 
in this city in automobile accidents, and during the first seven months of 
1920, 398 fatalities occurred, which does not include those injured. Of 
these total deaths, 140 have been little children under five years of age, and 
the number under ten was 458. The conditions are such as to arouse grave 
concern. Our present playgrounds undoubtedly have conserved the life of 
the children, by keeping them off the streets. With more extensive facilities 
and opportunities much more could be accomplished. 



74 
XIV— SCHOOL BATHS 
Budget Items 





Estimate 
1921 


Amount 

Apportioned 

for 1920 


Increase 


Estimate 
Schedule 
Number 


I. General School Fund — 

Salaries of Attendants, et al. 

1. Regular Sessions 

2. Summer Sessions 


$53,898 00 
18,142 80 


$26,040 00 
6,912 00 


$27,858 00 
11,230 80 


No. 17-p. 28 
No. 17-p. 28 


Total 


$72,040 80 


$32,952 00 


$39,088 80 




II, Special School Fund — 

Janitorial Service.. • . 


8,934 00 


4,800 00 


4,134 00 


No. 3i-p. 43 



One of the activities included under the term "Extension Activities" is 
the conduct of Swimming' Pools and Shower Baths. There is no more 
valuable activity conducted in the system, nor one which offers so much in 
return for the expenditure involved. 

The swimming pools olf'er opportunities for healthful exercise and 
recreation. Ability to swim adds to the confidence and courage of the 
individual. The values of swimming have been recognized in many of the 
secondary schools and colleges of the country, where ability to swim is one 
of the requirements for graduation. If our New York schools had adequate 
facilities such ability might with justification be required of all our pupils. 

There are eight swimming pools in school buildings and these are 
used both day and night throughout the school year and also during the 
summer session. 

The activity has been very popular, not only with those who attend the 
schools in the day time, but also with the adults. 

Shower baths are now maintained in 40 school buildings. It is planned 
to extend the service to two additional schools during 1921, involving an 
increase of $3,120. The greater part of the increase over the amount appor- 
tioned for 1920 is due to the increase in rates of compensation. Last October 
the Board of Education raised the compensation of teachers of swimming 
and bath attendants from $2 per session to $3, because at the former rates 
it was impossible to obtain persons to accept positions. The legislation sub- 
sequently enacted raised these rates 30 per cent., making the compensation 
$3.90 per session. Accordingly, of the $27,858 increase of the request for 
1921 over the amount allowed for 1920, $24,738, or most of it, is due 
to the higher compensation now in effect. 

Summer Sessions — 

During the summer the baths are open during the day to the children 
attending the vacation playgrounds, and some of them are open in the 
evening for adults. During the current season, 36 baths were conducted. 



75 

It is planned to extend the summer activity to 7 additional centers, involving 
an increased cost of $4,664. 

The demands for the use of these facilities have been outspoken and 
impressive upon the part of the people of the city. Expenditures in pre- 
vious years have been as follows : 



Year 



1913 
1914 
1915 
1916 
1917 
191« 
1919 

1920 



Regular 

Sessions 



$8,603 50 

17,754 28 

18,289 34 

8,768 50 

14,998 66 

13,376 56 

20,219 30 



$26,040 00* 



Summer 
Sessions 



$2,687 84 
3,325 62 
1,643 89 
2,048 00 
2,578 91 

3,120 25 



^6,912 00* 
6,993 00** 



Total 



m,291 34 
21,079 90 
19,933 23 
10,816 50 
17,577 57 
13,376 56 
23,339 55 



/ $32,952 001 
\ 6,993 OOj 



^Apportioned. 

**An application for 16,993.00, Special Revenue Bonds, approved by the Board of Estimate and 
Apportionment is now before the Board of Aldermen. 



76 

XV— COMMUNITY CENTERS, CIVIC FORUMS AND EXTENDED 
USE OF SCHOOL BUILDINGS 

Budget Items — 1921 



General School Fund 


1921 
Estimate 


1920 
Appor- 
tionment 


Increase 


Estimate 
Schedule 
Number 


Cost of Salaries — 

Regular Sessions 


$96,933 48 
5,967 00 


$55,938 00 
4,590 00 


$40,995 48 
1,377 00 


No. 15-p. 27 
No. 15-p. 27 


Summer Sessions 




Total 


$102,900 48 

1,300 00 
5,694 00 


$60,528 00 

1,000 00 
4,380 00 


$42,372 48 

300 00 
1,314 00 




Civic Forums — 

Directors of 


No. 15-p. 27 
No. 15-p. 27 


Supervisors of Extended Use of 
School Buildings 


Total 


$109,894 48 


$65,908 00 


$43,986 48 




Special School Fund — 

1. Supplies and Equipment. . . 


$29,532 50 

100,093 00 
4,575 00 


** 

70,833 67 
4,876 95 




No. 15-p. 36 


2. Janitorial Service — 

Regular Sessions 


$29,159 3d> 
*301 95 


No. 31-p. 43 
No. 31-p. 43 


Summer Sessions 


Total 


$134,200 50 

















*Decrease. 

**Included in lump sum appropriation for 1920 for General Educational Supplies and Equipment. 
The amount requested was $16,070.20. 



Community and Recreation Centers were organized in this city and 
elsewhere, in response to the demand that the school should not limit its 
activities to the instruction of children during the day, but that it should 
"minister to the other needs of the community besides the purely educa- 
tional." The needs of the community for recreation, social intercourse and 
for continuation instruction have caused the school to assume a wider range 
of activities. 

Our evening centers when first organized were estabHshed as recreation 
centers for the young boy and girl just out of school. Gradually these 
centers changed in character and became social centers for the community, 
catering more and more to the adult group. Their aim also developed from 
that of supplying facilities for recreation solely to that of providing oppor- 
tunities of a social character tending to arouse community consciousness. 

The work of the community and recreation centers as it has developed 
has become more and more valuable. In the first place, it provides proper 
forms of civic training, recreation and social education to our adolescent 
group between the time of leaving school and maturity. The athletic and 
physical training activities conducted promote bodily self-improvement, the 
entertainments, festivals and dances give social training, the debates, speak- 
ing contests and dramatics provide educational opportunities in language and 
literature, and the choruses and orchestras develop the music. 



77 

In the second place it provides opportunities for recreation to the adult 
groups. The development of industry, with its extensive use of machinery, 
has changed most forms of labor to work that is enervating in character. 
The reduction of working hours has increased the leisure time of our people, 
who have had little training in the use of such leisure. As a result com- 
mercialized forms of recreation have developed rapidly, all offering their 
attractions. The leisure time, instead of being a benefit, has become a 
source of danger. The community center aims to provide wholesome forms 
of adult recreation, in which participation rather than mere entertainment is 
emphasized. 

In addition to the above, the community center has played a successful 
part in developing civic and social consciousness in its neighborhood groups. 
It has been a most important agency for Americanization, so much so that 
the traditional evening school is borrowing its methods in dealing with 
the immigrant. 

Present Organisation — 

The following table gives data showing by boroughs the number of 
centers operated during the past school year : 



Borough 


Community & 
Recreation 
Centers of 
Bd. of Ed. 


Community 

Centers 

Organized 

By Citizen 

Groups* 


Total 


Manhattan 

Bronx 

Brooklyn ; 

Queens 

Richmond 


28 
6 

17 
3 


56 
16 
36 
16 

2 


84 
22 
53 
19 

2 


Total 


54 


126 


180 



*Partially or wholly self supporting and self governing. 



The request for 1921 (regular sessions) amounts to $96,933.48, an 
increase of $40,995.48 over the amount allowed for 1920, $55,938. Of this 
increase, $16,781.40 represents the cost of the increased compensation now 
effective, on the basis of the organization provided for 1920. Part of the 
cost is due to a change in personnel. It has been found necessary to replace 
some teachers in charge by principals, who receive higher compensation. 

In the second place, owing -to the demands imposed by a largely increased 
attendance, it has been necessary to increase the number of sessions to 
afford the required facilities for different neighborhood groups. 



78 

The expenditures for this activity for previous years for salaries have 
been as follows : 



Summer 

Year Regular Sessions Sessions 

1913 $83,837.64 

1914 87,046.73 

1915 49,549.98 

1916 19,379.00 

1917 35,859.10 $2,832.50 

1918 41,763.08 2,839.70 

1919 43,089.03 2,776.70 



1920 $55,938.00 $4,590.00 

Apportioned 



In 1914 the expenditures were over $87,000, which was reduced almost 
one-half in 1915. A further reduction was made in 1916, when financial 
inability compelled the Board of Education to reduce all activities not abso- 
lutely mandatory in character. Since then the allowance has been gradually 
increased, althought last year's expenditures were less than 50 per cent, of 
those for 1914. 

The limitations imposed by the lack of adequate financial support have 
lead to the organization of voluntary self-supporting centers by community 
groups. Such centers are under the close supervision of the department 
to the same extent as regular official centers. As a result the extension of 
the community center activity depends largely upon the organization of more 
and more of these voluntary centers. At these voluntary centers the jani- 
torial service is a cost that is borne by the Board of Education. 

Summer Sessions — The experiment conducted the last few seasons of 
keeping open some of the centers during the summer has proven very suc- 
cessful. The usual closing down of the centers on May 31st had in the 
past tended to interrupt the continuity of the activity of the various group 
organizations, who were compelled to seek other meeting places or to disband. 
The results of the year's work of the centers was largely lost and the facil- 
ities of our buildings were not available at a time when their use was 
especially sought. The amount involved is slight and is fully justified by 
the results obtained. No extension is involved, the increase over the amount 
allowed for 1920 being due to the higher rates of compensation now in 
effect. 

Civic Forums — Civic Forums were organized in a number of our schools 
in accordance with the requirements of Section 456 of the State Education 
Law : 

" For Civic Forums and Community Centers — Upon the peti- 
tion of at least twenty-five citizens residing within the district or 
city, the trustees or board of education in each school district or city 
shall organize and conduct community centers for civic purposes, 



79 

and civic forums in the several school districts and cities, to promote 
and advance principles of Americanization among the residents of 
the state. The trustees or board of education in each school district 
or city, when organizing such community centers or civic forums, 
shall provide funds for the maintenance and support of such com- 
munity centers and civic forums, and shall prescribe regulations for 
their conduct and supervision, provided that nothing herein contained 
shall prohibit the trustees of such school district or the board of 
education to prescribe and adopt rules and regulations to make such 
community centers or civic forums self-supporting as far as prac- 
ticable. Such community centers and civic forums shall be at all 
times under the control of the trustees or board of education in 
each school district or city, and shall be non-exclusive and open to 
the general public." 

The presence of radicals at some of these forums led to the expression 
of sentiments which were to be deplored and which aroused considerable 
criticism. The attempt to control the situation in some cases has resulted 
in the elimination of the free discussion which is a vital element at such 
meetings, if they are to be more than lectures. In order to provide persons 
who may be assigned officially to take charge of such forums, the estimate 
for 1921 includes an item for 5 directors at a cost of $1,300, which item 
was allowed for 1920. 

Extended Use of School Buildings 

An off shot of the community center movement is the wider use of the 
school plant. The Board of Education has for years granted permission 
to different groups or organizations the use of our school buildings in 
accordance v/ith prescribed rules and regulations. Such use is ordinarily 
requested for separate occasions rather than for a continuous period. The 
control of the use of our buildings in such manner was in past years dis- 
tributed among five committees of the Board, with the result that responsi- 
bility was scattered, red tape was developed and the control was lax. Last 
year I placed all matters relating to such use of buildings under the juris- 
diction of the Director of Community Centers. Rules and regulations seek- 
ing to offer the widest opportunity for use of our buildings to responsible 
groups of proper standing have been drawn up. 

In granting the use of our buildings to outside groups, it is essential 
that proper investigation be made of the applicants in order to assure proper 
protection of school plant and equipment, the maintenance of proper stand- 
ards in the activities conducted, protection against the commercialization 
of the schools, and the safe-guarding of the schools against dangerous, 
propaganda. 

Accordingly, it is highly desirable that some form of regular inspec- 
torial control be exercised over such use of school buildings. 

For such inspectorial control provision is requested for 1921 for salaries 
of two supervisors at a cost of $5,694. For these two positions, $4,380 was 
allowed for the current year, the difference being due to the recent increase 
of 30 per cent, in the rates of compensation. 

The following table gives data as to the number of sessions, aggregate 
attendance at community centers, etc., during the last school year: 



80 



Table XXI — Attendance at Community Centers 
August 1, 1919, to July 31, 1920 



Borough 


Number of 
Schools 


Aggregate 

Number of 

Sessions 


Aggregate 
Attendance 


Manhattan 

Bronx 

Brooklyn 

Queens 

Richmond 


95 
43 

88 
53 
17 


6,018 

1,284 

2,694 

982 

147 


2,244,357 

590,794 

828,309 

179,415 

18,047 




296 


11,125 


3,860,922 



81 



XVI. ATHLETIC COMPETITIONS AND AFTER-SCHOOL 
ATHLETIC CENTERS 

Budget Items 





1921 
Estimate 


1920 
Appor- 
tionment 


Increase 


Estimate 
Schedule 
Number 


I — General School Fund — 
Salaries — 

1. Athletic Competition. . . . 

2. Athletic Centers 

II — Special School Fund — 

1. Supplies and Equipment. . . 

2. Janitorial Service for Ath- 

letic Fields 


$7,800 00 
177,043 75 

59,517 57 
9,250 00 


$6,000 00 
80,755 00 

40,000 00 
*8,125 00 


$1,800 00 
96,288 75 

19,517 57 
1,125 00 


No. 18-p. 28 
No. 18-p. 28 

No. 62-p. 54 



*Inciuded in lump sum appropriation for janitorial compensation. 

Another instance of the wider use of the school plant is the utilization 
of school facilities for after-school athletics and recreation. As the con- 
ditions of city life tended to deprive the children to a very large extent of 
opportunity for play and exercise, the school has assumed responsibility 
for such activity. 

What is an After-School Athletic Center? 

An after-school athletic center is a center conducted in a school build- 
ing or on school grounds under the supervision of the Department of 
Physical Training of the Board of Education for the purpose of providing 
an opportunity for organized athletic and recreative instruction for day 
elementary and high school pupils. 

The centers are open from 3 to 5 P. M. on one or more days per week 
and are in charge of one or two teachers, according to the size of the group 
attending. Such forms of athletics and active play are conducted as the 
physical facilities permit. 

After-school athletic centers were first tried out during 1912-13 and 
proved so successful that since then the activity has gradually been ex- 
tended. 

Welsh Lazv Requirements. — The Welsh Law enacted in 1916 pre- 
scribed 200 minutes of physical training and directed recreation per week 
for all school children. With the limited physical accommodations avail- 
able in many of the schools it was impossible to comply with the require- 
ments of the law during the regular school hours. Accordingly, it became 
necessary to extend the physical training beyond the 9 to 3 P. M. school 
day. In many schools, therefore, the after-school athletic center has become 
a part of the regular school program and so serves an additional purpose. 

Attendance at Centers, etc. — The following table shows the number of 
centers operated during the last school term, together with the number of 
sessions for which teachers were assigned and the total attendance. Two 
hundred and twenty-six centers were operated and were attended by 
2,413,126 children. The per capita cost per session for boys was 1.58 cents 



82 

and for girls 2.67 cents. A teacher of a boys' center handled an average 
of 193 boys per session while in the girls' center the average was 102 per 
session. 

Table XXII — After-School Athletic Center Statistics — February to 

June, 1920 



Boys' Centres 


Total 
No. of 
Schools 


Total No. 
of Assign- 
ments 


Total 
Attend- 
ance 


Total 

Cost of 

Teachers 


Total 

Cost of 

Supplies 


Total 
Cost 


Manhattan 

Bronx 


46 
23 
43 
12 


3,775 

2,353 

2,656 

417 


744,615 

446,942 

510,260 

73,529 


$9,437 50 
5,882 50 
6,640 00 
1,042 50 


$1,206 19 

500 96 

1,127 81 

386 24 


$10,643 69 
6,383 46 


Brooklyn 

Queens 


7,767 81 
1,428 74 






Total 


124 
9 


9,201 

775 


1,775,346 


$23,002 50 
1,937 50 


$3,221 20 


$26,223 70 


Supervisors 


1,937 50 


Grand Total. . . 




9,976 


1,775,346 


$24,940 00 


$3,221 20 


$28,161 20 



Per capita cost 0158 



Girls' Centres 


Total 

No. of 

Schools 


Total No. 
of Assign- 
ments 


Total 
Attend- 
ance 


Total 

Cost of 

Teachers 


Total 

Cost of 

Supplies 


Total 
Cost 


Manhattan 

Bronx 

Brooklyn 

Queens 


39 

25 
27 
11 


2,410 

1,419 

1,704 

714 


265,926 

138,282 

164,262 

69,210 


$6,025 00 
3,547 50 
4,260 00 
1,785 00 


$127 99 
257 07 
245 52 
122 99 


$6,152 99 
3,804 57 
4,505 52 
1,907 99 






Total 


102 


6,247 
336 


637,780 


$15,617 50 
840 00 


$753 57 


$16,371 07 


Supervisors 


840 00 


Grand Total . . . 




6,583 


637,780 


$16,457 50 


$753 57 


$17,211 07 



Per capita cost 0267 



The athletic centers have been enthusiastically received by parents, 
principals and neighborhood associations throughout the city. Gangs have 
been broken up, street accidents have been prevented and truancy decreased. 
Many parents write their grateful thanks for the moral and physical safety 
of their children and their improvement in health and vigor. Interest in 
athletics has also been aroused and maintained. 



Budget Request 

The Director of Physical Training recommended that $213,200 be 
allowed for this activity so that 71 new centers could be organized during 
1921. The amount finally allowed by the Board of Education was $161,200, 
which involved an increase of $87,200 over the $74,000 appropriated for 
1920. Of the $87,200 increase, $22,200 is required to maintain the activity 
as at present organized but at the higher rates of salary. 



83 

Many principals have requested the extension of athletic center service 
in order that the Welsh Law program of directed recreation may be carried 
out. While the number of centers requested will not fully meet the general 
demand, it will be sufficient to meet the more urgent necessities. The loca- 
tion of centers is determined upon only after careful investigation of school 
needs. 

Athletic Competitions 

For the management of athletic competitions the sum of $7,800 is re- 
quested. This amount permits the maintenance of the service as in past 
years without any expansion. 

It has been demonstrated time and time again that important competi- 
tions such as interdistrict and interbo rough games of an athletic nature 
must be supervised and controlled by some responsible person, designated 
by the proper authority and responsible officially for the proper and orderly 
conduct of the occasion. Athletic competition for girls is of such a nature 
as to require the most careful supervision, and proper management of this 
work depends upon the services provided for in this item. 

IVhy Is This Work Not Done V oltmtarily by the Teachers? 

The question is frequently asked, " Why is this work not done volun- 
tarily by the teachers ?" It must be clearly understood that the $7,800 
requested does not begin to provide for the services rendered at athletic 
competitions. Ordinarily it requires sixty to seventy officials to conduct an 
athletic meet in a district. The huge bulk of the work in these competitions 
and in the after school athletics is voluntary service upon the part of the 
teachers. -It represents over $250,000 in service. Such service being vol- 
untary, requires stimulation, regulation and supervision. To provide such 
expert supervision and regulation it is necessary to obtain expert people 
who can be called upon for continuous service and for this compensation 
is provided. Such service also includes instruction to the volunteer teachers 
in the conduct of meets, tournaments and other contests. 

Expenditures in Previous Years 



Year 


Athletic 


Athletic 


Totals 




Centers 


Competitions 




1913 




$8,657 00 


$8,657 00 


1914 


$58,111 87 


9,485 00 


67,596 87 


1915 


47,041 25 


9,432 50 


56,473 75 


1916 


36,607 50 


3,585 00 


40,192 50 


1917 


60,292 50 


5,825 00 


66,117 50 


1918 


63,312 50 


5,694 50 


69,007 00 


1919 


60,418 00 


7,180 00 


67,598 00 


1920 


80,755 00* 


6,000 00* 


86,755 00 



*Apportionment. 



84 

LECTURE BUREAU 
XVII— EVENING LECTURES AND VISUAL INSTRUCTION 

Budget Items 





1921 
Estimate 


1920 
Apportion- 
ment 


Increase 


Estimate 
Schedule 
Number 


I — Lectures — 

1. Lecturers' Fees 


$40,000 00 

22,300 00 
10,500 00 

19,000 00 

16,172 00 


$33,600 00 

17,321 00 
4,200 00 

16,700 00 

11,048 00 


$6,400 00 

4,979 00 
6,300 00 

2,300 00 

5,124 00 


No. 20-p. 28 

No. 60-p. 53 
No. 31-p. 43 

No. 2-p. 31 

No. 2-p. 31 


2. Supplies, Equipment, Con- 

tingencies, etc 

3. Janitorial Service 

4. Wages- Temporary Em- 

ployees 


5. Salaries — 

Administrative Staff 




$107,972 00 


$82,869 00 


$25,103 00 




1 1 — Visual Instruction — 

1. Supplies, Equipment, etc... 


$34,250 00 


$27,000 00 


$7,250 00 


No. 64-p. 54 



Evening Lectures — Lecture Bureau 

Our system of free lectures was organized in 1898 when an appropria- 
tion of $15,000 was authorized. From that beginning the lecture system 
under the supervision of Dr. Leipziger developed greatly until it is a recog- 
nized activity in our city. 

The larger conception of the function of the school system posits that 
opportunities for education should be available not only for the youth but 
also for the adult. The possibilities open to the large class of persons of 
post-school age have been greatly increased by the leisure that has come 
to many through the shortening of the hours of labor. The necessity for 
teaching people to employ profitably their leisure hours is obvious to the 
most casual observer of our city life. 

The lecture system has enriched the lives of many. It has had valu- 
able practical results through the lectures on sanitation, hygiene, cooking. 
Through the lectures on civics, economics and history false notions of gov- 
ernment have been displaced by true conceptions of the duties and relation- 
ship between the citizen and the State. To give a concept of true democ- 
racy and what it should mean to each individual is the only way to raise 
the level of citizenship and thus preserve our institutional life. The value 
of the lecture system as an opportunity for cultural development through 
the lectures on art, literature and travel has been testified to time and time 
again by those attending. For 1921 the amount recommended for lectures 
by the Director was $60,000, which was reduced by the Budget Committee 
of the Board of Education to $40,000. The amount allowed for 1920 was 
$33,600, so that the amount requested for 1921 represents an increase of 
$6,400, or less than 20 per cent. 



85 



The following data show the amounts appropriated and expended in 
previous years for lecturers' fees : 



Year 


Amount 
Appropriated 


Amount 
Expended 


1913 


S65,000 
65,000 
65,000 
48,000 
50,000 
48,000 
30,000 
33,600 


$64,292 86 


1914 

1915 


65,010 27 
60,617 91 


1916 


47,248 83 


1917 


49,Q60 50 


1918 


36,210 16 


1919 


29,294 00 


1920 









The amount requested will not equal the appropriations in 1918 or 
prior years. The lecture system is undergoing reorganization under the 
supervision of the recently appointed Director of Lectures. The scope of 
the activity is being widened by bringing within its sphere of activity the 
public day schools. Provision is being made for supplying appropriate 
lecture service to day elementary and high school groups, teacher groups 
and parent groups. The type of lectures is being changed so that more 
attractive and up-to-date lectures will be provided. Under more favorable 
financial conditions this activity should receive more adequate support if it 
is to realize its aims. 

Under the control of the Direcor of Lectures has been placed the work 
of supplying appropriate material to be used in regular day school activities 
for visual instruction. The use of lantern and motion pictures as aids to 
instruction has been recognized but recently but is becoming more and more 
widespread. An experiment recently conducted by the Lecture Bureau 
showed that classes taught by means of visual methods obtained superior 
results in the subject of geography over classes taught by traditional 
methods. 

Very fev/ of our schools are equipped with stereopticon or moving 
picture machines. A number of our schools, recognizing the value of such 
equipment, have obtained it through funds privately raised or through 
extra school activities, entertainments, etc. The greater number of the 
schools, however, have no standard projection equipment. 

For the purchase of such equipment and for the purchase of slides 
and the rental of films, etc., an item is included in the estimate for 1921 
calling for $34,250, an increase of $7,250 over the $27,000 allowed for 1920. 
While it is recognized that this amount is quite inadequate as compared 
with the needs of the system, it marks a beginning. 



86 

XVIII— GENERAL EDUCATIONAL SUPPLIES' AND EQUIPMENT 

Fof general educational supplies and equipment for all activities, the 
sum of $2,602,530.51 is requested. The partial amounts making up this 
total have been shown under each activity discussed in the foregoing sec- 
tions of the report. The total amount requested for this purpose is ap- 
portioned as follows : 

Day Elementary Schools $2,038,351 17 

Day High Schools 377,968 20 

Vacation Schools and Playgrounds and Community Centers 124,948 10 

Evening Schools 61,263 04 

Total $2,602,530 51 

The above request is as low as the requirements of furnishing the 

necessary books, supplies and apparatus permit. The budgets for sup- 
plies for previous years have been as follows : 

1907 '. $1,367,565 00 

1908 1,367,565 00 

1909 973,000 00 

1910 973,000 00 

1911 1,112,467 57 

1912 1,167,690 13 

1913 1,335,752 09 

1914.... 1,509,121 62 

1915 1,573,020 84 

1916 1,510,188 46 

1917 1,498,498 11 

1918 1,484,518 90 

1919 1,484,098 77 

Average Amount $1,335,114 34 

For 1920 and 1921 the budget requests for this item show an increase 
over previous years due to the fact that the amounts requested for 1918 and 
1919 were not granted. The Bureau of Supplies was obliged in 1918 to 
cancel orders aggregating $196,000 and although notwithstanding the great 
increase in prices, the request for 1919 showed no increase over the amount 
granted for 1918, a cut of $149,000 was made from the request for that 
year. Had this money, $345,000, been available its purchasing power would 
have been much greater in 1918 and 1919 than in 1920. 

Were it not for the foresight of the Board of Education in making 
contracts for text books in 1914 for five years, the books furnished for the 
school children during the war period would have cost the Board of Educa- 
tion more than $1,000,000 extra, because of the increase in prices. 

The amount requested for 1920 was $1,930,461.37, which represented 
the minimum requirements of the system. This amount was not allowed. 
A reduction of $400,000 was made which brought the allowance for the 
current year below the amount granted for 1915 despite the growth in the 
r^chool population and despite the rising cost of supplies and equipment. 
The per capita cost for books and supplies is as follows : 

Elementary Schools $2 53 per pupil 

High Schools 5 18 per pupil 

Vacation Playgrounds 50 per pupil 

Evening Schools 1 22 per pupil 

Average 2 26 per pupil 



87 

XIX— PLANT OPERATION 
Budget Items 



Special School Fund 


1921 

Estimate 


1920 
Apportion- 
ment 


Increase 


Budget 
Estimate 


1. Janitorial Service 

2. Fuel 

3. Water 

4. Janitorial Supplies and 

Equipment 

5. Purchase and Repairs 


$3,356,418 46 

1,738,548 87 

20,000 00 

156,471 25 

7,600 00 


$2,714,770 74 

1,347,078 46 

15,200 00 

128,987 46 

7,600 00 


$641,647 72 

391,470 41 

4,800 00 

27,483 79 


No. 31-p. 43 
No. 32-p. 44 
No. 33-p. 44 

No. 34-p. 44 

No. 35-p. 45 








Total 


$5,279,038 58 


$4,213,636 66 


$1,065,401 92 





One of the necessary items of expenditures for which budgetary pro- 
vision must be made is the operation of the school plant. To visualize the 
school plant which New York City has already provided to accommodate 
its rapidly growing school population, one must think of a building, the site 
of which would occupy over three-quarters of Central Park, the floor space 
of which would equal one mile and the accommodations of which totaling 
825,000 sittings and 18,000 classrooms would seat all the school children 
of Chicago, Philadelphia, Cleveland, Boston and St. Louis. 

For the operation of this enormous school plant during 1921 $5,279,- 
038.58 is requested, which is 5.74 per cent, of the total amount of the budget 
estimate. 

Janitorial Service. — The bulk of the above-mentioned amount is re- 
quired for janitorial service, for which $3,356,418.46 is requested, involv- 
ing an increase of $641,647.72 over the amount apportioned for 1920. The 
increase in this item is due in large part to the increased rates of compensa- 
tion which went into effect on August 1, 1920. 

Fuel. — The item for fuel called for $1,738,548.87, which involves an 
increase of $391,470.41 or 29.1 per cent, over the amount apportioned for 
1920. The details of this item are found on page 44 of the budget estimate. 
The request for 1921 calls for a slight increase in quantity of fuel required 
for new buildings, the major part of the increase in cost being due to the 
high prices for coal that are now current. 

The request for fuel is based upon prices being paid under present 
contracts. The average price per ton, based upon the purchase of coal on 
an analysis basis, stevedoring, etc., is $11.83 per ton. Every effort has 
been made to keep the estimate down to the lowest possible point so that 
the amount requested is the minimum that will be required. The budget 
for fuel for 1904 was $584,544. For the succeeding years the budgets were 
as follows : 

1905 $453,387 00 

1906 451,864 00 

1907 451,094 00 

1908 501,800 53 



1909 501,800 42 

1910 526,880 10 

1911 522,130 95 

1912 561,939 07 

1913 648,687 36 

1914 612,132 74 

1915 606,812 15 

1916 559,516 67 

1917 559,217 98 

New schools and additions opened during the period between 1905 and 
1917 consumed coal costing in the aggregate over $1,700,000. Despite this 
increase in requirements, the fuel budgets for the years 1905-1917. inclusive, 
averaged $535,174.07, which in comparison with the amount allowed for 
1904 shows a decrease of $49,369.93. In 1918-1919 the cost of fuel was 
dependent • upon factors beyond the control of the Supplies Bureau. The 
Bureau^ however, was able to avoid any increase in tonnage burned. 

Janitorial Supplies and Equipment. — For this purpose $156,471.25 is 
requested, which is $27,483.79 or 21.3 per cent, above the amount appor- 
tioned for 1920. The request is based on current prices and the increase 
is accounted for to a very large extent by the high prices now prevailing 
for all articles included under this item and upon which the estimate was 
based. The Superintendent of Supplies states that from present indications 
such figures will be too low. The custodians of the schools are furnished 
with probably 200 lines of supplies, including acids, ammonia, brooms, 
dusters, cleaning cloths, fire tools, rubber hose, ladders, mats, various lines 
of machinery and cleansing oils, polishes, shovels, rakes, soap, soda, varnish, 
cotton waste, tools, flags, toilet paper, etc. etc., etc. The amount requested 
averages a little over $200 per school. 

New York operates its school plant at a comparatively low cost. As 
is shown by the comparison of school expenditures in the fifteen largest 
cities of the country (included in a later section of this report, pp. 104-114), 
New York, with an expenditure for 1918 of $4.12 per pupil, in average 
daily attendance ranks lowest in the group for which the average expendi- 
ture is $6.77. 

The following diagram. Figure 7, shows the proportion of total school 
expenditures (exclusive of capital outlay) devoted to the cost of plant 
operation by the fifteen largest cities in the country. The comparisons are 
based on data obtained from the United States Bureau of Education. New 
York in 1918 devoted 6.84 per cent, to this item which was only 59 per 
cent, as much as the average of the group of cities involved in the com- 
parison and only 45.5 per cent, as much as Chicago, the city first in rank 
for this function. 

Now York does not spend a disproportionate amount of its funds to 
operate its extensive plant. When the very extensive and intensive use of 
the school plant entailed in our numerous regular and extension activities 
is taken into consideration its showing is very creditable. 



89 




90 

XX MAINTENANCE OF SCHOOL PLANT 

Budget Items 



Special School Fund 


1921 
Estimate 


1920 
Apportion- 
ment 


Increase 


Estimate 
Schedule 
Number 


1. Salaries and Wages of 
Inspectors, Draughts- 
men and Employees . . . 

2. General and special 
repairs, alterations, re- 
placements and better- 
ments and classroom 
equipment in all types 
of schools 


$373,512 95 
6,455,464 82 


$277,577 82 
2,659,954 50 


$95,935 13 
3,795,510 32 


No. 2-p. 31 
Nos. 36 to 58 




Pps. 45 to 53 


Totals 


$6,828,977 77 


$2,937,532 32 


$3,891,445 45 









Maintenance of School Buildings, Repairs and Replacements 

One of the most important items for which budgetary provision must 
be made is that for maintenance and repairs of school buildings. We have 
at present nearly seven hundred buildings used for school purposes, rang- 
ing from a one-room building to mammoth sized structures such as Wash- 
ington Irving High School. New York has been putting up school buildings 
for one hundred years, and our problem always has been to provide accom- 
modations for our constantly growing school population. Some of our 
buildings are very old, some represent the last word in school architecture. 
The accumulated cost of our buildings and equipment amounted, including 
last year, to over one hundred and twenty-seven million dollars. 

Sound business principles recognize that it is false economy to allow a 
plant to deteriorate and to avoid expense by omitting to do necessary repair 
work. Our school plants, representing an outlay of so much money, should 
be kept in the highest condition. Our efforts should be directed not only 
to building new schools but also to bringing our older buildings up to date 
and to keeping them in a good state of repair. 

Not only from a consideration of sound business principles but more 
from a regard for the welfare of the children entrusted to our care must 
proper provision for this item be made. The sanitary conditions in our 
buildings should be of the highest order, heating and ventilating apparatus 
must be brought to a satisfactory degree of efficiency, the lighting facilities 
should be above criticism, the old school furniture, where necessary, must be 
replaced, fire risks must be removed, and the other necessary repairs must 
be made to provide wholesome conditions that will insure the safety, health, 
comfort and happiness of our children. 

Another factor to be taken into consideration is the fact that absolutely 
in no other city of our country are the school plants put to such extensive 
and constant use as in this city. Our system of extension activities, includ- 
ing the largest evening school system in the country, community and recrea- 
tion centers, after school athletic centers, vacation schools, lectures, forums. 



Errata Slip 
Figure 8, showing" " Appropriations for Maintenance Repairs 
and Replacements in Comparison with Accumulated Cost 
of School Buildings and Equipment," is found on page 95. 



'91 

and the extensive use of school buildings by community groups makes neces- 
sary the almost continuous operation of most of our school plants. Condi- 
tions of school congestion in many schools also add considerably to the hard 
usage of plant and equipment. 



Table XXIII — Accumulated Cost of School Buildings and Equipment and 
Amounts Appropriated for Maintenance and Replacements 



Year 


Accumulated 

Cost of 

Buildings and 

Equipment 


Amount 
Allowed for 
Maintenance 
and Replace- 
ments, etc. 


Per Cent. 

of Ac- 
cumulated 

Cost 


Amount 

Equal to 2% 

of Accumulated 

Cost 


1904 

1905 

1906 

1907 

1908 

1909 

1910 

1911 

1912 


$55,984,939 47 

65,182,013 34 

74,182,981 55 

84,559,600 08 

93,374,180 34 

97,887,647 38 

100,076,565 24 

104,061,750 22 

107,627,244 00 

111,919,946 41 

115,595,866 42 

119,599,390 64 

121,788,602 77 

123,690,089 28 

125,489,362 22 

127,233,283 19 


$1,203,175 00 

863,855 00 

1,346,805 00 

956,806 00 

1,528,748 00 

1,404,400 54 

1,338,423 12 

995,641 25 

989,694 32 

1,067,102 50 

1,385,433 38 

1,287,255 85 

900,100 09 

795,201 26 

1,000,894 48 

926,939 24 


2.15 
1.32 
1.81 
1.13 
1.64 
1.43 
1.33 
0.96 
0.92 
0.95 
1.19 
1.08 
0.74 
0.64 
0.79 
0,73 


$1,119,698 78 
1,303,640 26 
1,583,659 62 
1,691,192 00 
1,867,482 60 
1,957,752 94 
2,001,531 04 
2,081,235 00 
2,152,544 88 


1913 


2,238,398 92 


1914 


2,311,917 32 


1915 


2,391,987 80 


1916 


2,435,772 04 


1917 


2,473,801 78 


1918 

1919 

1920 


2,509,787 24 
2,544,665 66 











Table XXIII shows the amounts appropriated each year for repairs 
and replacements in the years 1904 to 1920, inclusive. The table also 
shows the accumulated cost of our school buildings and equipment and the 
per cent, of such cost involved in the amounts appropriated for upkeep. 

It should not cost the Board of Education more to repair its buildings 

than any private industrial or business concern. On the other hand, should 

it cost the Board any less? Business concerns and industrial plants thati 

? Fubject to no more constant usage than are school plants consider 2 to 

cent, on the value of the plant as a moderate rate of expenditure for 

Table XXIII shows for the years 1904 to 1919 what the rate for up- 
._un school buildings in New York has been. In 1904 the allowance 
this purpose amounted to 2.15 per cent, of the accumulated cost. From 
. on the rate of allowance dwindled irregularly until in 1919 it repre- 
d but 0.73 of one per cent, of the accumulated cost, 
i'he table also shows, for comparison, the amoimts that would have 
equal in each year to 2 per cent, of the accumulated cost. These data 
-■ - , ^'"'ted graphically in P^igure 8. The horizontal axis shows the 
accumulated cost of plant. The vertical axis shows the amounts allowed 
for upkeep. The solid line of the graph shows the amount allowed in rela- 
tion to the accumulated cost. Distance to the right on the graph means 



92 

increase in accumulated cost of plant. Distance upward means increase 
in allowance for upkeep. The broken line in the graph shows the amounts 
that would have been allowed on the basis of a 2 per cent, rate of appropria- 
tion. 

. The heavy line moves steadily to the right, indicating increase in ac- 
cumulated cost each year; in some years greater than in others. The line, 
however, does not move steadily upward. It is very irregular, moving up 
and down. It reaches its highest point in 1908 when about a million and a 
half was appropriated. From 1908 on the line moves irregularly down- 
ward, reaching the lowest point in 1918 with an appropriation of $795,000. 

The broken line indicating a 2 per cent, allowance moves steadily up- 
ward as it moves toward the right. That is it shows that with an increas- 
ing cost of plant an increasing allowance should have been granted until 
in 1919. two million and a half would have been allowed instead of the 
$926,939 actually appropriated. 

These data are very significant. They show that for years past New 
York has not made proper financial provision for the upkeep of its school 
buildings. While the plant has increased in size and in cost, the amount 
of rnoney appropriated for upkeep has actually grown smaller and relatively 
reached, in 1919, a point only about one-third of what it was in 1904. This 
is in the face of the increasing cost for labor, materials and equipment and 
also in the face of a rapidly increasing usage of plant and equipment. 

The estimate submitted includes not only items for foreseen and unfore- 
seen repairs, but also a number of special items for classroom equipment 
and alterations, necessitated by the initiation of new or additional activities 
or by the introduction of new types of school organizations. 

A determined effort should be made this year, to be continued for some, 
time to come, to make up for the neglect of previous years. Sound business 
sense demands that our school plant be kept from deterioration. The inter- 
ests and welfare of the children make it imperative. 



93 



XXI— ENLARGEMENT OF SCHOOL PLANT 

For the erection of new buildings and the acquisition of necessary sites 
and playgrounds the budget estimate for 192 li includes a request for 
$46,920,327.80. Explanatory details are found on pages 59-61 of the budget 
estimate. The above amount is distributed as follows : 





Buildings 


Sites 


Total 


Elementary Schools 

High Schools 


$23,662,933 00 

11,500,000 00 

2,500,000 00 

800,000 00 

33,500 00 

500,000 00 

326,894 80 

1,250,000 00 

3,500,000 00 


$2,025,000 00 
535,000 00 


$25,687,933 00 
12,035,000 00 




2,500,000 00 


School for the Deaf 

Pianos and Organs for New Buildings. . 


187,000 00 


987,000 00 
33,500 00 




500,000 00 


Improvement of Playgrounds (owned) . 

Supplies Depository 

New Administration Building 




326,894 80 




1,250,000 00 


100,000 00 


3,600,000 00 






Totals 


$44,073,327 80 


$2,847,000 00 


$46,920,327 80 



For a full discussion of the needs of the school system for additional 
accommodations the reader is referred to the recent report of Superin- 
tendent Shallow on the "Building Programme of the Board of Education." 

The rapid expansion and constant growth of the city's population has 
made it very difficult to provide a " convenient seat for every child." Our 
obvious difficulty is not only in keeping the number of sittings equal to 
the number of school children in the city as a whole, but also in providing an 
adequate number of sittings convenient to the children who must use them. 
If school sittings could be shifted in any manner approaching the facility 
with which parents move their belongings, when new transit lines open, 
there woul'd be no part-time problem, and no attendant financial questions. 

Over this whole matter of housing and seating pupils New York City 
was recently in a state of financial breathlessness, like a person who has 
speeded after a moving automobile, only to find it drawing farther away. 
Such a person usually slows down, sometimes stops, and wonders if there 
is not another way of getting to his destination. So New York, a few years 
ago, hesitated long enough in its building programme to examine and then 
flatly reject the skillfully exploited Gary plan of duplicate school organiza- 
tion. Once more we are speeding behind the part-time problem, but with 
more definite purpose and greater effort. At the present rate of speed there 
is an excellent chance of overtaking part-time, if we do not collide with 
some financial obstacle, like the pay-as-you-go policy, which, as its name 
indicates, is a plan to finance the erection of buildings out of the tax levy, 
instead of issues of corporate stock. 

It has recently been proposed, however, to secure by legislation at the 
special session of the Legislature an amendment to the pay-as-you-go law 
which would enable the city authorities to pay for school buildings out of 
corporate stock. If such legislation' is secured the outlook for solving this 
problem will be more promising. 



94 

Table XXIV — Special Report on Registration and Part-Time in Day 
Schools on September 15, 1920, as Compared With Registration and 
Part-Time on September 9, 1919 





Registration 


Part-Time 




Seot. 15, 
1920 


Increase Over 

Sept. 9, 

1919 


Sept. 15, 
1920 


Increase Over 

Sept. 9, 

1919 


Elementary 


776,111 

75,692 

1,292 

3,018 

856,113 


'15,562 

2,539 

40 

497 

18,638 


79,782 
6,495 

86,277 


27,173 


High 


1,894 


Training 




Vocational 




Total 


29,067 








JO 55 60 65 70 75 60 85 90 95 100 105 TiO ilS iZO 125 130 

ACCUMULATED COST OP BU\LDINQ5 £vND ErQUIPA^tNTClN AAILUONS) 

PJQUCLE: e> 

APPI2.0PI2.l>^TIONS FOR, 
/AAI/STE:/SA/SC&, BEPAII2,5 A/^D IiE:PLi\CEAAE:m5 
1/^ C0/APAR150/M WITH ACCUMUL/JJED COST 
OP SCrtdOL BUlLDI/^eS A/MD EQUIPMENT 
IS04.-I9I9 



96 

XXII— THE PLACE OF EDUCATIONAL EXPENDITURES AMONG 
THE FINANCIAL REQUIREMENTS OF THE CITY 

One of the most significant social developments in the last fifty years has 
been the concentration of people into large urban centers. With the rapid 
growth of cities there have arisen new social and political problems of a vital 
character. Of such problems the most fundamental is that of public educa- 
tion. The organization and administration of a public school system which 
will provide the children in our cities with adequate educational oppor- 
tunities, both in kind and in amount, is) a social problem of supreme 
importance. 

The development of large cities with its concentration of population, 
has brought to the fore at the same time many other municipal requirements 
besides education, such as : the protection of life and property, water supply, 
sanitation, health, the care of the needy and dependent, building and tene- 
ment inspection, etc., so that, paralleling the development of large city school 
systems there has grown up the organization of varied and extended munic- 
ipal activities to meet the complex requisites of municipal life. 

One result of the expansion of municipal activity has been the remark- 
able increase in municipal revenues, expenditures and debts. A secondary 
result of the extension in scope of modern municipal needs and activities has 
been the keen competition for financial support to which education is now 
subjected. 

In America education has always been considered a social activity, the 
final control of which was properly a state function. Because of this state 
control education has tended to become somewhat isolated in the field of 
municipal activity. To make sure that the schools received their proper 
share of the municipal funds it has been necessary to protect the schools by 
statute and within specified limits many of our states, including New York, 
have given the school system the right to determine the amount of school 
funds needed and to certify the same to the taxing authority for levy. 

In New York City, for instance, the Board of Education is allowed 
funds up to 4.9 mills on every dollar of assessed valuation of real and per- 
sonal property. Above this amount the Board of Estimate and Apportion- 
ment has discretion to grant additional funds. With so large a school system 
as that in New York, growing so rapidly, the present rate of 4.9 mills does 
not yield sufficient funds to provide the means for maintaining our present 
activities, without any provision for the very necessary expansion of activ- 
ities or the initiation of desirable modifications of our educational practice. 
In the last analysis for financial support the school system is dependent in 
large part upon the city authorities. While primarily a state concern, educa- 
tion is none the less a municipal responsibility, for which adequate pro- 
vision must be made; in fact, education may, with justification, be regarded 
as a first mortgage upon the city's resources. 

How Have the Schools Fared in the Competition for Municipal 

Financial Support 

It will be of interest to consider how the New York school system has 
fared in the growing competition for municipal financial support. 

Table XXV shows for each year from 1902 to 1920 the total tax budget 
for the city at large, the budget for the Board of Education and the per- 
centage relation of the budget for the Board of Education to the total tax 
budget for the city. 



97 

Table XXV — Proportion of Total City Budget in New York Devoted to 

Public School Purposes 



Year 


Tax Budget for 
City at Large 


Tax Budget for 

Board of 

Education 


Per Cent, of 
Budget for Schools 

to Tax Budget 
for City at Large 


1902 


$98,619,600 88 
97,119,031 10 
106,674,955 09 
109,817,593 03 
116,805,490 37 
127,421,505 66 
140,572,266 17 
153,622,701 06 
159,130,270 37 
163,967,835 16 
177,802,899 77 
190,411,441 16 
190,495,551 62 
192,877,694 08 
208,956,177 54 
206,114,136 82 
235,023,759 20 
246,190,434 88 
272,014,485 13 


$23,294,152 05 
20,063,017 77 
20,913,017 77 
21,997,017 77 
23,358,188 69 
24,915,926 16 
26,712,963 59 
27,470,736 80 
28,578,432 43 
29,007,747 14 
33,849,819 74 
35,206,846 96 
38,203,406 92 
39,840,349 90 
39,865,981 53 
41,430,447 49 
42,501,156 04 
45,121,163 26 
49,408,681 12 


23.62 


1903 


20.66 


1904 


19.61 


1905 


20.03 


1906 


19.99 


1907 


19.55 


1908 


19.00 


1909 

1910 


17.88 
17.96 


1911 


17.69 


1912 


19.04 


1913 


18.48 


1914 


20.05 


1915 


20.65 


1916 


19.08 


1917 


20.10 


1918 


18.08 


1919 . 


18.32 


1920 


18.16 







In 1902 the budget of the Board of Education was $23,294,152.05, out 
of a total city budget of $98,619,600.88, or 23.62 per cent. For 1920 the 
Board of Education was allowed $49,408,681.12, out of a total city budget 
of $272,014,485.13, or 18.16 per cent. The above data are shown graph- 
ically in Figure 10. 

From the data presented it appears that the schools are not maintaining 
their ground in the competition for financial support. In 1902, out of every 
$1,000 of taxation, the school budget obtained $236. In 1920 the schools' 
share was $181, out of every $1,000, a relative reduction of $55. These 
figures are for single years. The same condition is shown when the averages 
for a period of years are compared. The average share of the total city 
budget appropriated for the public schools during the five years, 1902-1906. 
was 20.78 per cent., while for the last five years, 1916-1920, the average 
per cent, was 18.75, a reduction of 2 per cent. 

It is realized that the total budget for the city contains provision for 
interest on the city debt and also for its redemption and that the schools share 
in the debt. It is also to be noted that the figures for the school budget 
do not contain that part of the debt service which was entailed because of 
the obligations incurred for school purposes. Accordingly, while it is con- 



■nGURE-9- 

MILUONS 


•ANNUAL- SCHOOL- BUDGET- IN -COMPARISON -WITH -TOTAL- CHY- BUDGET 
1902- 1920. 


^*' • EACH- RECTANGte • REPRESENTS THE'TOTAU- CATi Bl)OG£T 

•THAT-PART- 0FTHERECTAN<31£ • FROM THE -BASt TO THEBHOKEN. LINE- 

-REPRESENTS THE- TOTAL- et JY • BUPGET LESS- DEBT" SERVIciE. 

■THE • SOLID PART Of EACH- RECTANfiLE • REPRESENTS THE- SCHOOL- BUDGET' 

tea 




z6o 

260 










240 


z*e 












220 


220 
















200 


too 










I 














180 


189 




























ISO 












leo 




















,-... 










140 


<40 




































120 


[to 





































100 














lOO 




80 






... 
































80 




so 




~~ 




































60 


40 




































d 


■ 


40 

20 

































■ 




20 


■■■ 









^^^^l^^^^^^^l 


(902 '03. '04 '05. ' 06. ' 07. 08 "09. '10 11. 'l2. '13. '14. '(5. *I6. " XT- ' \6. 'I9. "20. 



99 



FIGURE-ID- 


•PROPORTIONOF-TOTAL- CITY- BUDGET- DEVOTEO-TO- SCHOOL- PURPOSES- 

• I902- I920 • 


pen CENT 1 
100 . . 1 


90 










































80 










































70 










































60 










































50 










































40 










































30 










































20 


- 








































10 


h 


1 


II 


II 


1 


1 


1 


1 


1 


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II 


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1 


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minimimni 




1902, 'Oi. '04. '05. '06. '07 'Oa '09. '10. 'II. '12. '13. '14. '15. '16. '17. '18. '19. '2a 
•SHADED • PART- REPRESENTS- SCHOOL - BUDaET- 



100 

sidered valid to determine how much of the whole tax budget is devoted to 
current school purposes and to regard the debt service as one of the munic- 
ipal requirements with which the schools have to compete, it has been 
thought desirable to supplement Table XXV by Table XXVI. Table XXVI 
shows the city tax budget after the item for debt service has been deducted, 
in comparison with the school budget. 

Table XXVI — Proportion of City Budget Less Debt Service Devoted to 
Public School Purposes. 



Year 


Tax Budget for 

City at Large 

Exclusive of 

Debt Service 


Budget for 

Board of 

Education 


Percent Budget 

of Board of 

Education is of 

Total Budget for 

City, Exclusive 

of Debt Service 


1902 

1903 

1904 

1905 

1906 

1907 

1908 -. 

1909 


$75,487,329 87 

73,424,962 25 

76,963,665 05 

80,550,898 30 

85,689,283 16 

92,163,050 29 

100,117,493 31 

106,399,622 73 

112,684,574 65 

113,306,013 17 

126,548,361 60 

135,434,059 82 

137,884,033 97 

133,045,313 04 

145,742,967 43 

136,369,567 87 

159,433,299 18 

168,258,496 78 

197,172,946 47 


$23,294,152 05 
20,063,017 77 
20,913,017 77 
21,997,017 77 
23,358,188 69 
24,915,928 16 
26,712,963 59 
27,470,736 80 
28,578,432 43 
29,007,747 14 
33,849,819 74 
35,206,846 96 
38,203,406 92 
39,840,349 90 
39,865,981 53 
41,430,447 49 
42,501,156 04 
45,121,163 26 
49,408,681 12 


30.81 
27.32 
27.17 
27.31 
27.26 
25.95 
26.68 
25.81 


1910 


25.36 


1911 

1912 ' 

1913 


25.61 
26.75 
26.00 


1914 

1915 


27.71 
29.94 


1916 


27.35 


1917 


30.38 


1918 


26.66 


1919 


26.81 


1920 


25.06 







Relatively the same trend is shown by the above figures as by the data 
of Table XXV. In 1902 out of the total city budget (less debt service) of 
$75,487,329.87 the school's share was 30.81 per cent., while in 1920 the 
school's proportion was 25.06 per cent. In other words, out of every $1,000 
of taxation the schools obtained $308 in 1902 as compared with $251 in 
1920, or $57 less per $1,000 of taxes. 




HOW NtV/ YOC.K5PE/^T IT3 SC»^OOL DOLLAR 
DUBIMG SCHOOL YtAE. 1918-1919 



102 



XXIII— HOW NEW YORK SPENT ITS SCHOOL DOLLAR FOR 
THE 1919 SCHOOL YEAR 

For the school year ending July 31, 1919, the expenditures for school 
purposes by the Board of Education totaled $48,175,407.38. The following 
table shows the particular items that made up this total and also the per 
cent, of the total that was devoted to each. The diagram shows how much 
out of each dollar expended was spent for the various items. 

The largest item was that for instruction in day schools, for which 
76.92 per cent, of the total was expended. Out of every dollar spent 73.5 
cents went to pay for salaries of teachers and principals in day schools. 
For text-books 1.44 cents and for supplies 1.97 cents were spent out of 
every dollar. 

On evening schools there were spent but 1.84 cents on the dollar. On 
our other extension activities and auxiliary agencies, including some minor 
miscellaneous items only 1.91 cents were spent. Many persons have the 
notion that a goodly part of our funds go to these " extra " activities. The 
table and figure show that by far the greater part of our expenditures is 
devoted to day school activities. 

Table XXYU— Expenditures for the School Year 1918-1919 



Purpose 


Amount 


Percent 


I. Expenses of General Control- — • 

1 Business administration 


$579,756 97 
672,230 46 

499,009 29 


1.20 


2. Educational administration 

3. Enforcement of Compulsory Edu- 

cation, Truancy Laws and Census 
Enumeration 


1.39 
1.03 






Total 


$1,750,996 72 


3.63 






II. Expenses of Instruction, Day Schools — 

1. Salaries of Principals,Teachers, et al 

2. Textbooks 


$35,414,517 51 
696,430 56 
949,401 24 


73.50 
1.44 


3 Supplies, etc 


1.97 






Total 


$37,060,349 31 


76.92 






III. Expenses of Instruction , EveningSchools — 

1. Salaries of principals, teachers, et al. 

2. Textbooks 


$849,905 89 
10,538 27 
29,580 91 


1.75 
0.02 


3. Supplies, etc 


0.06 






Total 


$890,025 07 


1.84 







103 



f 

Purpose 


Amount 


Percent. 


IV. Operation of School Plant — 

1. Wages of Janitors and other em- 
ployees 


$2,048,525 15 

1,037,608 73 

15,191 75 

94,228 13 


4.28 


2. Fuel 


2.15 


3. Water 


0.01 


4 Janitors' Supplies 


0.19 






Total 


$3,195,553 76 


6.63 






V. Maintenance of School Plant — 

1 Repair of Buildings 


$228,699 53 

1,116,829 59 

215,621 72 
37,940 95 


0.47 


2. Repair of Heating, Lighting and 
Plumbing Kquipment 


2.32 


3. Repair and Replacements of Furni- 
ture 


0.44 


4. Other expenses 


0.08 






Total 


$1,599,091 79 


3.32 






VI. Expenses of Auxiliary Agencies and 
Sundry Activities — 
1. Libraries 


$36,730 49 

202,653 13 

5,420 65 

5,799 74 

89,281 04 

45,970 72 

233,824 21 

200,572 50 


0.07 


2. Transportation of Pupils 


0.42 


3. Care of Children in Institutions. . . . 

4. Lunches 


0.01 
0.01 


5. Lectures 


0.19 


6. Social Centers 


0.10 


7. Other expenses 


0.48 


8. Payments to Corporate Schools. . . . 


0.41 


Total 


$820,252 48 


1.70 






VII. Expenses of Fixed Charges — 

1. Pensions 


$3,791 80 
98,594 40 




2. Rent 








Total 


$102,386 20 


0.21 






VIII. Capital Outlay — 

1. Land 


$388,289 61 
2,368,362 44 




2. New Buildings 








Total 


$2,756,652 05 


.5.72 






Grand Total 


$48,175,407 38 


99.97 







104 

XXIV— HOW DO THE SCHOOL EXPENDITURES IN NEW YORK 
COMPARE WITH THOSE IN OTHER CITIES? 

Data as to the school expenditures of each city in the United States 
are submitted annually to the United States Commissioner of Education 
and are published in tables in the biennial reports of the United States 
Bureau of Education. They afford the only readily available means of 
comparing the school system of one city with those in other cities of the 
country. Such comparisons, while subject to certain limitations which 
must be taken into account, yet afford a means for judging how close one 
system is approaching another in educational efforts and in educational 
achievements. 

In the following analysis of school expenditures in New York City 
comparison was made with those of the fourteen next largest cities. The 
data used were obtained from the United States Bureau of Education. Such 
data relate to the school year 1917-1918. As the Bureau of Education 
publishes statistics every two years instead of annually, data for the year 
1918-1919 are not available and data for 1919-20, the last school year, have 
not as yet been submitted. The data used herein were obtained in advance 
of publication through the courtesy of H. R. Bonner, of the United States 
Bureau, who is about to publish a study of school expenditures in 45 cities 
of the United States having a population of 100.000 or over, according to 
the census of 1910. 

In making any comparison of the school system of New York City 
with that of other cities in the country one must constantly bear in mind 
that New York, because of its enormously large population, the immense 
size of its school system, its geographical location, and its industrial condi- 
tions is really in a class by itself. At the same time, in a general way, the 
problems of educational administration in all of the larger cities are quite 
similar in character, although varying in scope or degree so that certain 
comparisons may be made with profit. 

The analysis undertaken herein is intended to show how much New 
York City spends per pupil upon the main items of current school opera- 
tion and to compare such per capita costs with those in the 14 next largest 
cities. 

The main objects of expenditure may be grouped as they are grouped 
in our budget into the following classes : 

1. General control. 

2. Instruction. 

, 3. Operation of school plant. 

4. Maintenance of school plant. 

5. Auxiliary agencies. 

6. Fixed changes, etc. 

The expenditures for capital outlays, new school buildings and sites and 
betterments have not been included. The expenditures for evening schools 
have also been excluded. To secure a basis for comparison the total ex- 
penditure for each class of items has been divided by the total average daily 
attendance in day schools. 

Figue 12 shows the total expenditure per pupil in average daily 
attendance for current operation in fifteen cities arranged according to rank. 
The first city, Los Angeles, spends $74.25 per pupil. The second, Cincin- 



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nati, spends $64.79 per pupil, and so on down to the fifteenth, which is 
Baltimore, with an expenditure of $38.28. The average of the fifteen cities 
is $57.25. 

How much should be expended per pupil has never been scientifically 
determined. There is no available standard norm with which to compare 
the per pupil expenditure of any city. It is imposible to say therefore that 
the expenditure of Los Angeles, which ranks first, is too high or indicative 
of extravagance. In the absence of a standard the average expenditure 
of a group of cities must serve as a substitute. 

New York with an expenditure per pupil of $59.06 is seventh in rank. 
Its expenditure per pupil is slightly above the average for the group of 
fifteen cities, and is exceeded by six other cities. It spent about 80 per cent, 
as much as Los Angeles, the highest, and about 150 per cent, as much as 
Baltimore, the lowest ranking city. 

The diagrams that follow show how New York ranks in camparison 
with the other cities in the group in per pupil expenditure for the different 
items that make up the total expense for current operation. 

It is to be noted that in the major item of instruction New York ranks 
second with an expenditure which is 114 per cent, of the average. Cor- 
respondingly New York ranks low in the minor items such as plant main- 
tenance where it is twelfth in rank with an expenditure of only 60 per cent, 
of the average, and in plant operation where it ranks last with an expenditure 
again of only 60 per cent, of the average. In auxiliary agencies and in gen- 
eral control its expenditures are average. 

Figure 20 shows for the various items of expenditure under con- 
sideration the per cent, of deviation above or below the average for the 
highest ranking and the lowest ranking city in each case respectively and 
for New York. 

It would appear that the expenditures incurred by New York are nor- 
mal as far as a group comparison may serve as a standard and that the 
emphasis is on the proper item, namely, instruction. 



110 











FK3UB.E-16. 


EXPENDITURE PER, PUPIL IN AVERAGE DAILY ATTENDANCE FOR 
SUPPLIES ETC. FOR IHSTRUCTION IN FIFTEEN CITIES FOR. 
-1918- 




CITV 


AMOUNT %\. 


$2. 


$3 




1. CINCINNATI. 

2. LOS ANGELES. 

3. PITTSBURG. 
4- BOSTON. 

5. NEWARK. 

6. 5T.LOUIS. 

7. CLEVELAND. 

8. MILWAUKEE. 

9. PHILADELPHIA. 

10. NEV/ fORK. 
H. BUFFALO, 
le. DETROIT. 
IX CHICAGO. 

H. SAN FRANCISCO. 
15. BALTIMORE. 


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DOES NEW/ YORK SPEND TOO MUCH ?EP. PUPIL FOR. INSTRUCTION SUPPLIES ? 
IT RANKED TENTH IN 1918 WITH AN EXPENDITURE pER. pUpIL OF $L20 WHICH 
WAS 73 9i OF THE AVERAGE E>i;pENDITURE OF THIS GROUP OF CITIES 
AND 379^ AS MUCH AS THE AMOUNT EXPENDED BY LOS ANGELES 
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